HDF Hull Development Framework
Core Strategy Issues, options and suggested preferred option
HDF Core Strategy
1 Introduction 5 What is a Core Strategy? 5 What is this document about? 5 What is planning? 6 How does planning work? 7 What is the ‘new’ planning system? 7 How this document is organised 9 How to get involved 9 2 Hull in context 11 Big issues facing Hull 12 Local issues 13 Other policies and strategies 17 Community Strategy as a starting point 18 Sustainability Appraisal Framework 19 3 Strategic issues, options and suggested preferred option 23 4 Future pace of change – city scenarios 25 5 Future development needs 31 A Broad, guiding principles 37 Sustainable development 37 Sustainable communities 39 Regeneration priorities 42 Climate change 48 Risk of flooding 51 Transport system and getting about 55 Infrastructure and development funding 58 B Quality of life 61 Future housing provision - overall scale and distribution 61 Housing mix 71 Meeting brownfield targets 80 Future shopping provision 84 Tourism 93 Healthy living 95 Health care provision 98 Quality of place 102 Urban Greenspace 104 Heritage 106 Sport and active recreation provision 108
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C Jobs and prosperity 111 Scale and distribution of employment land 111 D Education, learning and skills 127 School and higher education provision 127 6 Suggested spatial vision for the city 133 7 More detailed planning matters 135 8 Plan delivery and performance 137 What is involved in delivering the vision 137 Measuring plan performance 138 9 Having a comprehensive and sound evidence base 141 Appendices i Hull Development Framework forum members 143 ii Use Classes Order 147
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1 Introduction What is a Core Strategy? 1.1 This document is the first stage in the production of Hull’s Core Strategy. It will eventually be a central part of the Hull Development Framework (HDF). The HDF is a collection of planning documents which will replace the Local Plan. Planning documents contain policies that help decide when and where to grant planning permission or where money should be invested in the city.
1.2 The Core Strategy identifies the big issues and sets a long-term vision for the city until the year 2026. It sets out the principles for future development and establishes the relationship between the city and the wider region. It suggests the best way for locating new housing, business, shops and open space. In its final form, it should contain a Key Diagram illustrating broad areas of proposed change or conservation.
1.3 However, the Core Strategy cannot identify individual sites. Instead, other documents within the HDF should develop the Core Strategy principles into more detailed policies, including site allocations with specific boundaries. Although the Core Strategy does not go into specifics it will determine the future direction of the city.
What is this document about? 1.4 This document is for public comments. The Council has written it, taking into account the views of others. It suggests the main issues facing the city and proposes potential options to tackle them.
1.5 We now seek feedback and a suggested preferred way forward from the community. If you do not agree with any of the matters raised or how we intend to tackle these you can suggest alternatives. We welcome alternatives but they must be reasonable and justified. This will allow us to go on and produce a Preferred Options document that reflects the views of local people and those who wish to develop or invest in Hull in the future.
1.6 We have attempted to identify the major issues facing Hull's future by using the OneHull Community Strategy as a starting point. Then we have produced a number of realistic options for tackling each of these issues. Following each set of options we have provided what we feel is the best way forward, in the form of a preferred option. These are backed up by evidence in this document and in several more detailed background documents, all of which are open for you to view and consider. At this stage we invite you to tell us whether you agree with part or all of what is suggested.
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1.7 We have developed this document and other plans by engaging with a number of key local organisations and people. This has involved:
Elected Members from across the Council who have steered and informed us;
running regular events with Hull Development Framework Forum. This is made up of key people representing local business, the community and the environment. Appendix 1 includes the current list of members; and
meeting with other key people about particular challenges facing the city. For example, a steering group has formed to look at employment land issues in detail.
1.8 We will be doing more to listen to and involve local people by holding exhibitions and attending further meetings, taking on board comments where we can.
1.9 Depending on the extent of your support we can go on to produce a Preferred Options document that will show how or what actions are needed to tackle key issues facing the city. This document will include simple policy statements that will summarise an approach in terms of how a preferred option will or should be acted on. You will also be able to comment on this. Consultation on this is currently programmed for early next year.
1.10 The Core Strategy is an example of a Development Plan Document (DPD). Every DPD must go through a number of stages before a final version can be produced. We aim to submit a final version of the Core Strategy to the Government Office in 2010. It will then undergo an independent public examination. Its formal adoption is due in 2011.
What is planning? 1.11 Planning shapes the places where people live, work, relax and play. Good planning ensures that we get the right development, in the right place, at the right time. It protects and enhances the natural and historic environment, and conserves the countryside and important open spaces. The planning system also seeks to reduce carbon emissions and make more efficient use of resources. Successful planning makes a positive difference to people’s quality of life and helps to provide homes, jobs, and better opportunities for everyone.
1.12 Planning is about place making or shaping. This involves:
ensuring that land uses work together rather than conflict;
ensuring that investment in places happens in a co-ordinated way;
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taking into account all the city’s strategies and plans;
greater collaboration so that everyone with an interest in the city’s future has an opportunity to take part and influence the new plan;
delivering the place related elements of the Community Strategy; and
basing plans on an agreed set of facts. This is to make sure that they are ‘sound’ before they go to independent public examination.
1.13 Planning is also about land use. Appendix 2 to this document sets out a list and categories of uses by Use Classes Order.
How does planning work? 1.14 A planning framework or plan for the city is needed which looks to the future and helps determine where development should occur or where the environment should be protected. This framework can also help decide where future investment should go.
1.15 When people want to develop they have to apply for planning permission. The UK has a ‘plan-led’ system. This means that planning applications are decided by considering how they agree with the adopted framework or plan.
1.16 It is therefore important that the city’s planning documents are widely supported by the community. If not, then development may not be widely accepted or provide sufficient certainty for those wanting to invest in the city. Development Plan Documents must also be developed in a way which supports local, regional and national priorities and policies. If not, then they will be judged unsound in a public examination.
What is the ‘new’ planning system? 1.17 Until recently, local authorities were responsible for producing Local Plans and Structure Plans. Hull’s Local Plan, also known as CityPlan, was adopted in May 2000. A Joint Structure Plan was produced by the City Council and East Riding of Yorkshire Council, and was adopted in June 2005. We are currently in a period of transition. We have saved most of the Local Plan and Structure Plan policies but they will eventually be replaced as and when newer documents are adopted.
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1.18 The Planning and Compulsory Purchase Act (2004) brought in a new planning system based around Local Development Frameworks and Regional Spatial Strategies. The City Council is responsible for the Local Development Framework, known locally as the Hull Development Framework (HDF). The Regional Assembly is responsible for the Regional Spatial Strategy, known as the Yorkshire and Humber Plan.
1.19 The Local Plan was a large single policy document. The HDF will be a collection of documents. Some of these documents have to be produced and others are optional and respond to local circumstances.
1.20 The Local Development Scheme outlines the full list of documents being produced and sets out a timetable for their production. These include:
a Core Strategy – which concerns this document but not waste or minerals matters;
a City Policies Development Plan Document (DPD) – provides policies to steer or manage proposals for new development across the city;
a Site Allocations DPD – shows where new housing, employment land, and other new facilities should occur;
Area Action Plan DPDs – these co-ordinate development in areas where significant change is desired. Currently, these areas are the city centre, Newington and St. Andrew's area of West Hull, and part of East Hull, focused around the Holderness Road area;
Joint Waste and Minerals DPDs - these consider provision for waste facilities and minerals provision across Hull and East Riding of Yorkshire;
a Statement of Community Involvement – this describes how the Council hopes to engage the community in the production of planning documents and in deciding planning applications; and
Supplementary Planning Documents – these can provide additional guidance on such matters as design.
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How this document is organised 1.21 The document is set out in the following order:
1.22 Sections 2 to 4 provides a general introduction to the really big and challenging issues facing the city. Key policies and strategies of relevance to planning are outlined such as the Community Strategy, which is taken as a starting point for the Core Strategy. Then, different scenarios are set out, showing how the city might change between now and 2026. This includes broad locations for new housing, employment and open space;
1.23 Section 5 outlines some broad guiding principles in planning the future. Terms such as sustainable development are explained. It then explores each of the Community Strategy themes and what they mean for planning. It includes consideration of the Community Strategy priorities around quality of life, jobs and prosperity alongside education and learning. Related planning issues along with objectives and options are set out on this basis;
1.24 Section 6 sets out a suggested place-related vision for the city;
1.25 Section 7 explains more detailed planning matters that will need to be, or are being, tackled in other Development Plan Documents; and
1.26 Section 8 sets out information about how plans can be turned into reality and how their success will be measured.
How to get involved 1.27 We have reflected the views of others in putting together this document. We have also reflected matters from studies that we have completed or other relevant evidence, but there is more to do. We realise that other people may have a view on what we have derived so far. This document allows an opportunity for wide ranging comments.
1.28 Let us know your views on any of the matters raised in this document. In particular, we need your views on the proposed objectives and what your preferred options are. Objectives and options are in highlighted boxes throughout the document. If you can think of any other options that have not been mentioned, let us know, but they have to be realistic and justified.
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1.29 To help us, we would like your views on the following:
Key questions and how should I respond?
1. Do you agree with the issues, objectives, options and suggested preferred option?
2. If you do not agree, you need to explain what and how the challenges facing the city, could best be tackled?
3. What other justifiable options are there?
1.30 We will continue to seek community involvement by hosting a series of local events, and by continuing to run the HDF Forum. Information will also be printed in local publications to keep you informed.
1.31 This document and other related background documents can be made available in large print, audio, disk, braille or in other languages. Please contact us if you need further advice by phoning the contact below.
1.32 You may contact us either by writing to:
Freepost 152 Planning Services Planning Policy (HDF) Kingston House Bond Street Hull HU1 3BR
or visiting Planning Services on the 2nd Floor of Kingston House, Bond Street;
or, contact us by email on [email protected]
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2 Hull in context 2.1 Hull is a unique city with a proud heritage. With a population of just 21,000 in 1801, Hull grew rapidly during the second half of the 19th Century as the port became a focus for international trading. Our maritime history and its associated merchants and industrialists have all influenced Hull and is reflected in the city’s culture and identity.
2.2 The city has played a key role in the story of Britain, and its port is still of regional, if not national importance. The City is experiencing 'once in a lifetime' investment which is helping re-shape areas and improve everyone's quality of life. This is being planned to make sure this brings long lasting benefits. We are also recognised as a Regional City and need to think and act beyond our administrative boundary.
2.3 Hull is a city of contrasts. High levels of unemployment and deprivation has meant that many have left the city, often to the surrounding towns and villages of East Riding. Despite this, the city acts as a hub for the Humber sub-region, and serves its neighbours for many of their job, shopping, cultural, leisure and schooling needs. High quality housing and relatively affluent areas lie close to poorer, run-down areas. The city has a successful university and a number of world-renowned companies, but at the same time has a number of poorly-performing schools, relatively high levels of unemployment and low wages. The built environment ranges from high quality listed buildings and contemporary architecture to derelict and poor quality open or degraded spaces.
2.4 Analysis of the housing market shows that there are high numbers of empty properties, a limited choice in terms of available stock, and low values compared to other parts of the region. There is also a growing affordability issue as prices rise but wages do not.
2.5 Trends show that many higher wage earners are leaving the city. Often it is to pursue what is perceived to be a higher quality of life in East Riding. This is leading to higher levels of social segregation because generally only the poorer, more dependant sections of society are left. We believe that if this trend continues it will increase the burden on public spending needed to support Hull’s deprived communities.
2.6 In recent years, the city has been transformed through exciting new developments, including the KC Stadium, The Deep, and the BBC Centre at Queen’s Court. The city centre is being revitalised through major shopping and leisure developments at St Stephen’s and Quay West. These improvements are attracting new visitors and jobs to the city.
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2.7 Hull’s port remains an important part of our local economy, and is one of the biggest and fastest growing in the UK. Hull is benefiting from its global trading links, and many thousands of people are employed by the port and in pharmaceutical, petrochemicals, communications and other sectors of industry.
2.8 Significant investment is being channelled into primary and secondary schools to build on Hull’s recent successes in improving educational attainment. The University of Hull is expanding and every year attracts hundreds of research awards and overseas students to the city. Hull’s colleges have a strong reputation for the quality of their vocational learning.
Big issues facing Hull 2.9 Planning has already had a considerable influence on the current city but more needs to be done. The current Local Plan for the city provides a context for investment but is becoming increasingly out of date. However, the strategy adopted in the Local Plan has been successful in directing development and investment to particular locations including the city centre, shopping centres, employment areas and new housing. Urban green spaces and other valued places have been protected from potentially adverse development.
2.10 The current challenges facing the city are well documented. A number of supporting studies to the Hull Development Framework help explain what these are and how they can be measured. These are critical to understand how the city functions and the challenges that face it in the future. What follows provides a snapshot of key issues facing the city.
Hull’s population has dropped in size. Of England’s cities, only Liverpool and Manchester experienced a greater decline between 1991 and 2001. Many people continue to leave Hull to live in the East Riding. However, the past two years have seen a slight increase in the population of the city following an increase in migrant workers and refugees choosing to live here.
The city’s age profile is younger than average which presents opportunities and challenges.
Hull’s economy is growing, but comparatively slowly, and much of this growth is taking place in public sector jobs. Some of our traditional industries face strong global competition, and we need to attract more jobs and investment into the city.
At 69.7% in 2005, Hull’s employment rate is significantly lower than the regional (74.7%) or national averages (75%), and those in the region’s other cities.
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In 2001, a high proportion of Hull residents held no qualifications at all (41.2% compared to 28.9% for England). Educational attainment at Key Stages 1 and 2 is closer to the England average. Although improving rapidly, the proportion of pupils achieving 5+ GCSEs at A*-C in Hull (44.1%) remains significantly below the England average.
The 2007 Index of Multiple Deprivation ranked Hull as the 11th most deprived of the 354 local authorities in England and is the most deprived local authority in our region.
Crime remains a significant issue for the city. Whilst the rate of reported burglaries has fallen significantly in recent years, this remains two and a half times the England average.
Male life expectancy in Hull (73.7 years) is below the national average (76.2) and death rates from lung cancers have not reduced for more than a decade.
Local issues 2.11 The city is made up of a number of residential neighbourhoods and industrial areas. Each has its own distinct function, quality or character. Local people can know a lot about their area. We need their input to tell us what they think is important. Bringing various people's views together will help draw up a list of priorities for the city and for the local areas within it.
2.12 To help discussion we have put together a short list of matters which may be relevant to parts of the city. These local issues may also be of strategic importance and therefore need to be taken into account in the Core Strategy. They are explained in relation to the seven Area Committees established in the city. These operate over three to four wards, as illustrated by the map below.
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Map 2.1 Area committee boundaries and wards in the city.
NORTH CARR
KINGS PARK BRANSHOLME EAST
BRANSHOLME WEST ORCHARD PARK & GREENWOOD SUTTON
NORTHERN EAST LONGHILL UNIVERSITY BE VE RL EY HOLDERNESS INGS
NEWLAND BRICKNELL SOUTHCOATES WYKE EAST DERRINGHAM SOUTHCOATES AVENUE WEST PARK DRYPOOL
MYTON MARFLEET
BOOTHFERRY NEWINGTON
L
RIVERSIDE L
U
H
.
R WEST ST. ANDREWS
PICKERING
2.13 Potential planning issues facing each of the city's Areas are listed below.
North Carr
Continued development of Kingswood including employment use and further house building and provision of community/local facilities;
better links established between Kingswood and Bransholme;
flooding issues around Kingswood and impact on perception for people moving to the area;
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open space ‘water holding areas’ near Holderness Drain;
plans for regeneration as part of the area;
tackling deep-rooted deprivation; and
the relative priority for regenerating North Bransholme.
Northern
Developing neighbourhoods within the area as sustainable mixed income/tenure communities;
flooding issues and impact on perception for people moving to the area;
re-focusing community services in or around existing shopping centres;
tackling deep-rooted deprivation;
University being a draw for investment;
making more of the link with nearby Cottingham; and
re-establish a centre for Orchard Park.
East
Developing neighbourhoods within the area as sustainable mixed income/tenure communities including dealing with heritage as an asset;
anticipated area of change as part of Gateway renewal;
open space ‘water holding areas’ near Holderness and Old Fleet Drains;
re-focusing community services in or around existing shopping centres;
finding appropriate re-use following closure of Princes Royal hospital; and
tackling deep-rooted deprivation.
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Wyke
Developing neighbourhoods within the area as sustainable communities including protecting places which are of high heritage value;
potential for regeneration and appropriate use/mix of uses around Clough Road and the National Grid site;
tackling proliferation of student accommodation, Homes In Multiple Occupation, and drinking uses;
future proposals for National Avenue employment area – possible housing use in the long term; and
re-focusing community services in or around existing shopping centres.
West
Developing neighbourhoods within the area as sustainable communities;
flooding issues and impact on perception for people moving to the area; and
completing Priory Park as employment site linked to the current Birds Eye site.
Riverside
Major physical change is expected in parts of this area within the city centre which has wider significance for the city as a whole and within Newington/St Andrews area, where major new housing is expected to improve quality of living here ;
City Centre as the focus for major re-development including major shopping, offices and leisure use;
flooding issues and impact on perception for people moving to the area;
Hessle Road shopping centre as focus for community;
future potential for new uses in dockland areas and riverside sites; and
considering the economic potential of the River Hull Corridor but also longer term potential for mixed housing and economic uses.
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Park
Major physical change is expected in parts of this area along the Holderness Road corridor with major new housing spread throughout East Hull;
potential of the Port ‘cluster’ area for expansion of manufacturing uses rather than storage/distribution including north of Hedon Road;
re-focusing community services in or around existing shopping centres;
tackling-deep rooted deprivation;
consolidation of Marfleet village and its long term sustainability; and
flooding issues and impact on perception for people moving to the area.
2.14 More general matters of significance raised by people and through Area Committees include points around tackling anti-social behaviour and fear of crime, access to facilities and public transport provision, environmental improvements and need for regeneration.
Other policies and strategies 2.15 The Core Strategy needs to be informed by a wide range of plans, strategies, policies and programmes at international, national, regional and local level. The Core Strategy should take all these into account. The relevance of each of these is taken into account in this document.
2.16 Below is a list of current or emerging policy and guidance that will affect the future planning of Hull.
National
Planning for a Sustainable Future White Paper and the Planning Reform Bill
Homes for the future: more affordable, more sustainable - Housing Green Paper (July 2007)
National Planning Policy Statements and Guidance
Local Transport Bill
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Regional
Regional Spatial Strategy (The Yorkshire and Humber Plan)
Regional Housing Strategy
Regional Economic Strategy (produced by Yorkshire Forward)
City-region (part of the Northern Way)
Hull and Humber Ports City Region Transport Vision
Hull and Humber Ports City Region Development Programme (September 2006)
Local
OneHull Community Strategy
Local Transport Plan
Housing Strategy
Children and Young People's Plan
Hull Local Plan (May 2000)
2.17 This list is just an overview of the main documents that we will take into account. The Scoping Report to the Sustainability Appraisal of the Hull Development Framework contains a more complete list.
Community Strategy as a starting point 2.18 The OneHull Community Strategy for the city is based around three key priorities. These are:
Jobs and Prosperity,
Education, Learning and Skills, and
Quality of life.
2.19 There is also a related plan of actions called the Local Area Agreement.
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2.20 The Community Strategy priorities should be taken as the starting point for the Core Strategy. The Core Strategy can help deliver these priorities by explaining where new investment and development should be provided. The right planning policies can help steer investment to the right place and at the right time. We believe that high quality policies and plans can provide the certainty that is required to continue attracting future investment.
2.21 Based on the Community Strategy, issues that need to be thought about when drawing up the Core Strategy include:
the quality of places and the wider environment and how we need to protect or improve these;
the type, number and quality of jobs and the sectors of the economy that will help the city grow and prosper;
what housing and community facilities are needed to support quality living, neighbourhoods and businesses; and
future access and movement needs so that people and goods can move efficiently around the city.
2.22 A Spatial Strategy has also been developed by OneHull, assisted by the City Council. It begins to explain how the Community Strategy can be realised by taking into account major funding proposals, such as the Gateway Pathfinder scheme and Building Schools for the Future. This has helped establish initial ideas for creating the Core Strategy. It has also helped focus attention towards where, when and who should be responsible for investment in locations across the city. The map produced as part of the Spatial Strategy could form the basis for the Core Strategy's Key Diagram.
2.23 It may seem as if many strategic planning options have already been determined, but there are still genuine decisions to be made. We believe that there are still many options available to the Core Strategy, including issues on the scale, timing and extent of development and investment.
Sustainability Appraisal Framework 2.24 All plans have to be sustainable which means they should improve overall quality of life for all now and for future generations. We test how sustainable plans are using an accepted way of doing this. The Council's Sustainability Appraisal Framework sets out a broad range of objectives which we will have to take into account when producing plans. These objectives include:
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creating a learning city enhancing levels of education and skills for all;
improve the health of everyone and encourage healthy lifestyles;
reinvigorate the housing market and ensure everyone has the opportunity to live in a decent and affordable home;
encourage involvement, a sense of community and identity;
support equity for all, tackling social exclusion and prejudice;
maintain or enhance safety and reduce crime or fear of crime for everyone;
maintain or provide good quality employment opportunities for all and reduce economic exclusion;
create conditions which support regeneration and sustainable economic growth encouraging business diversity and investment;
optimise creativity and innovation in business and design;
optimise Hull's economic role and position in the sub-region, region as a whole and internationally;
promote Hull as a good place to live, work and visit;
maintain or enhance efficient land use;
support sustainable travel and movement of people and goods;
positively contribute to the quality of the built environment, townscape and public realm;
enhance the function of the city and district centres providing complementary and appropriate mix of uses and facilities within and between centres;
enhance access to quality leisure, cultural and recreational activities for all;
efficient consumption of energy and natural resources;
minimise pollution including greenhouse gases and enhance environmental quality;
reduce waste, minimise the use of non-reusable materials and encourage recycling;
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reduce vulnerability of Hull to flooding and potential impacts of climate change; and protect and enhance habitats and biodiversity.
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3 Strategic issues, options and suggested preferred option 3.1 This section addresses the big or strategic issues and options facing the city. These are divided into headings based on the Community Strategy priorities. Broad guiding principles from national planning policies are explained and local issues raised by Area Committees and the Hull Development Framework Forum, are also addressed.
3.2 The following issues and options are based on facts we know about the city. The Council has commissioned a number of studies to inform the Core Strategy. So far, the evidence base includes a Sustainability Appraisal Scoping Report, a Housing Market Assessment, an Employment Land Review, a Strategic Flood Risk Assessment and Retail Assessment. We are working on further background documents, such as an open space and recreation study. These studies are available on request or can be viewed on the Council's website. We are also aware of major development proposals which are ongoing including Building Schools for the Future and Health Care schemes, which need to be taken into account. We have also considered evidence from partner organisations and welcome further facts and figures which explains how the city works. This can help to ensure we delivery a robust, co-ordinated and 'sound' plan.
3.3 A Sustainability Appraisal is produced alongside this report, used to judge plan impacts including on equalities and health. Habitat Regulations Assessment has also to be completed. This will judge how the options put forward will impact on internationally important sites along the estuary.
3.4 Each theme in this section of the report is organised along the following lines:
relevant national, regional or local policy context;
relative importance of the topic and significance of any issues and challenges;
broad facts and figures to back up issues and challenges raised;
suggested future direction;
suggested objective in addressing the above;
suggested options to address the suggested objective;
suggested preferred option;
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how the options will be measured; and
how the options will be delivered and by whom.
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4 Future pace of change – city scenarios 4.1 As part of the Housing Market Assessment we have considered three scenarios which look at different possible futures for Hull to the year 2026. We have to plan in a way which meets these potential futures. The plan has to be flexible enough to cope with changing circumstances and different market expectations. Each of these scenarios will have different land and development demands. These range from us having to meet limited needs if current trends are followed, to meeting high demand, if the high growth scenario is followed. All scenarios require land to be managed carefully, but in different ways.
4.2 These scenarios are useful to help determine a course or direction of travel. A number of local strategies, including the Community Strategy, seek a high growth agenda. The City-Region Development Programme seeks to achieve high economic growth and sets out positive actions and targets to inform appropriate investment, such as in transport measures. The Gateway Strategy suggests a more cautious 'plan, monitor and manage' approach to managing housing supply.
4.3 If we can decide what the city should look like in the future, that can help us decide what sort of plan is needed. That in turn helps decide what action and policies we need to help make this change happen. Others will need to ensure they can make the plan become reality. It is also important to plan for change that is realistic and achievable.
4.4 We therefore seek agreement on the most desirable scale and type of future growth. Three scenarios which try to imagine the city in the year 2026 are:
Scenario A – following current trends
4.5 The city's population is anticipated to fall along the lines of previous long-term trends by around 3,000 despite short-term increases through international inward migration. Employment declines by around 2,500 jobs with these mainly being in lower-value occupations with corresponding increases in East Riding largely arising from growth of service sector uses on the outside edge of the city. The number of new dwellings is expected to increase by around 15,800 largely as the result of a reduction in household size, which has a significant impact on household growth. Deprivation increases in general across the whole of the city but is particularly marked within those areas which have suffered deprivation for some considerable time, such as the inner city and outer estate areas. Physical environment deteriorates. Although there may be re-development ‘pockets’ these are dispersed and not large enough to make any significant difference to the economy or housing markets. Policy and intervention
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operates on the basis of providing a steer but is followed loosely and interpreted with a high degree of flexibility. Proposals are normally dealt with in a reactive rather than proactive way.
Scenario B – low economic growth
4.6 The city's population stabilises and increases by around 4,500 arising from economic growth in the city centre and port-related development although this is not sufficient enough to attract or retain large numbers of middle income families. Employment grows through taking action in assembling sites by around 3,000 jobs. This arises through a switch in job profile with losses in manufacturing and processing to growth in managerial and professional jobs. The housing market begins to support greater numbers of families as they prefer to live in the city. Secondary school performance and neighbourhoods will be stabilised although deprivation will continue to worsen. The number of new dwellings is expected to increase by around 19,600 units. Physical environment in parts of the city begins to slowly improve and dereliction and eyesores are removed through re-development. Policy operates on the basis of providing a strong influence on the market as part of a plan-led approach.
Scenario C – high economic growth
4.7 The city population initially stabilises and then increases by around 11,300 arising from unprecedented growth in service and financial sector economy (largely within the city centre). Employment is expected to grow by around 8,000 jobs on the back of concerted action including land assembly. Housing market renewal occurs given the strong policy focus on areas where there is greatest chance for success in attracting middle income people and in creating or shaping more sustainable neighbourhoods. The number of new dwellings is expected to increase by around 23,100. Physical environment improves slowly at first but then more quickly arising from major re-development and programmes of major investment in the public realm. Policy operates on the basis of providing a strong steer aligned to a co-ordinated action programme. Proposals are dealt with in a proactive rather than reactive way. Any divergence from this approach would dilute impact.
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4.8 These scenarios are summarised in Table 4.1 below:
Table 4.1 Hull HDF anticipated potential and future scenarios (2008–2026)
Scenario Population Jobs Dwellings required Scenario A -3,000 -2,500 15,800 Scenario B 4,500 3,000 19,600 Scenario C 11,300 8,000 23,100
4.9 These are plausible scenarios based on economic and population modelling, although Scenario C could be taken as being more aspirational than realistic. Each is driven by different approaches to co-ordinating investment and action necessary to make development happen. Any one of them could happen depending on the plans we make now or on market conditions. The success of the plan depends on its implementation and the degree of co-operation between those who influence the development of the city.
4.10 The speed at which change can happen will also depend upon a number of factors not least how the economy performs. We need to consider how planning should react to changes in the market. For example, phasing the release of development land to match periods of economic decline and growth may be sensible. As an alternative, it may be wiser to create the conditions that allow the private sector to develop by concentrating development activity in different parts of the city. These factors and the extent of potential change are explored in later sections of this document.
4.11 If we aim for high growth, as detailed in Scenario C, we need to tackle some of the fundamental barriers to success. This means, amongst other things, making sure that:
there is sufficient, readily available land and premises to meet short-term needs;
there is sufficient land assembled and controlled in such a way that it is able to meet long-term needs;
land is reserved for the most beneficial uses, such as industry or housing, so that long-term growth needs can be met; and
development is delivered in a way that supports wider needs.
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4.12 The above action could reinforce and assist the business and housing markets in the city to achieve their full potential. There would also need to be a strong link between the plan objectives and necessary public intervention. This means having a fully integrated plan and linked delivery programme. We also need to ensure that what happens outside the city complements what we are trying to achieve within it.
4.13 Taking this approach may also mean a culture change in the way current organisations work. Realising high levels of growth will require:
making bold decisions;
effective leadership including cross-boundary relationships;
public sector funding to lever in private resources;
having capacity to deliver projects;
tackling the challenges that face the city in a 'holistic' rather than 'piecemeal' way;
being proactive and less reactive to development opportunities; and
managing investment in a co-ordinated and planned way.
4.14 These things will have to occur and will need strengthening over time. A 'plan, monitor and manage' approach will be used to judge the effectiveness of such an approach.
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4.15 Suggested options and preferred options in working toward a city of the future, are outlined below:
Option
1. To consider what is needed to move away from Scenario A.
2. To deliver Scenario B as the most realistic way forward.
3. To work towards Scenario C but accepting this is a challenging and aspirational agenda requiring radical ways of working and delivery.
Suggested Preferred Option:
Establish a 'stepped approach' which entails working from Scenario A levels, to increase to Scenario B levels and then Scenario C, over the plan period.
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5 Future development needs 5.1 We have completed a number of studies to help determine future development needs. These have been completed in line with Government guidelines and have been carried out in conjunction with key interest groups or stakeholders. For example, a Steering Group was formed to consider future employment land needs with people and organisations who have considerable economic and development expertise. The Hull Development Framework Forum has also helped in steering the consideration of future development needs and plan making.
5.2 A suggested ‘stepped approach’ (Table 5.1 below) to realising growth and physical change in the city is put forward for discussion. This is suggested as the city’s ‘direction of travel’. This will require further work and evidencing but it recognises current circumstances surrounding land and development economics. Work is needed to build capacity into the first part (say five or six years) of the plan period. The second delivery stage involves more concerted forms of action to help physical development and change. The final plan period will begin to see much more sustained growth and reduced forms of public intervention.
5.3 The intention is that high growth is achieved by the end of the plan period but in a gradual way. As already referred to, this requires considerable funding, co-ordinated action, strong leadership and decisive decision making, particularly on the part of the Council who has a lead role on advising on strategy leading to effective delivery. It also requires that land and existing buildings be used in the most sustainable way.
Table 5.1 Realising a stepped approach
Phase 1 – Major organisational change to begin to focus on developer/land needs. A co-ordinated programme of action is put together. Planning permissions and public funding programmes are better co-ordinated. Hull Forward begins in helping continue major physical change in the city centre as a priority including advancing Humber Quays, Fruit Market and East Bank Strategic Development Areas. Annual economic development begins to grow. Land assembly begins to take place. Work is progressed on Castle Street junction improvements and plans for major land bridge. House building in the city continues around 600 - 700 dwellings a year including properties within the City Centre, Newington St. Andrew’s area and Kingswood. Preparatory work for East Hull Gateway area is completed. Greenspaces are retained for sport, recreation and amenity value and new provision in the NaSA area is realised. Northern Park and Ride site nears completion.
Phase 2 – Benefits from Phase 1 begin to come to fruition arising from land assembly. Land assembly continues which is matched to immediate economic needs. West Hull
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economic corridor proposals are well advanced along with all city centre Strategic Development Areas including Quay West and Heart of the City. Castle Street proposals are confirmed and land acquisition is completed. The port area grows allied to added value manufacturing uses. House building grows to around 1000 units per year including in the city centre and at Kingswood. Most ‘brownfield’ sites including those within the inner city core are under investigation and actions undertaken to assemble land for mixed housing/economic use. NaSA area nears completion toward end of this phase. East Hull Gateway area is well advanced. Eastern Park and Ride site is completed.
Phase 3 – Benefits from intervention from Phase 2 continue to be realised. City Centre Strategic Development areas almost complete. Castle Street development is completed toward back end of this period resulting in major economic change/growth potential in the eastern corridor. Western Corridor economic sites near completion. House building rates increase to around 1300 per year including completion at Kingswood. Major remodelling is under way within the inner core of the city adjacent to the city centre boundary along with major re-modelling within the River Hull Corridor for potential 'urban villages', for mixed housing and economic uses. Edge of city 'urban extensions' are under discussion with East Riding of Yorkshire toward the end of the plan period.
5.4 The broad location of these longer term suggested development needs are shown in Spatial Options Map (located at the back of this document) but considered in more detail in the following sections A to D. Other existing uses and known development proposals or constraints, are mapped on this plan, including:
shopping centres;
transport links and proposals;
regeneration areas;
major flood plain; and
open spaces.
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5.5 This stepped approach and suggested development needs to cover the plan period is summarised in Figure 5.2 below.
Table 5.2 Suggested development needs over the period to 2026 (including approximate phased needs in brackets)
Land type Phase 1 Phase 2 Phase 3 Total estimated 2021-2026 land needed 2008-2014 2015-2020
Employment 4 ha per year 7 ha per year 9 ha per year 120 hectares
(28 ha) (42 ha) (54 ha)
Housing 650 dwellings per 1000 dwellings 1300 dwellings To be determined year per year per year through Housing Land Availability Assessment Food No need 3,000sq m To be determined Later needs to be shopping between major through determined and local centres monitoring and through review of review retail assessment Non food Major needs of To be determined through monitoring shopping approx. 13,000sq and review m and local needs approx. 17,500sq m Open space To be determined following Open Space Audit Assessment
5.6 This stepped approach could be considered as a preferred option for the city. It has been considered on the basis of known constraints which limits development potential of land within the city and what can be achieved. The constraints include:
the influence of planning and development activity outside the city in East Riding of Yorkshire;
the city's administrative boundary which is tightly drawn to the built edge;
achieving the best use of land in balancing competing needs for development and conservation;
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flood risk challenges including not being able to build in the very high risk areas;
high deprivation challenges within the inner city and outer estates, which limits the extent of development because there are insufficient skills within the city to drive economic change;
nature conservation value of urban green spaces including those along the Humber estuary, which have to be protected from development by international law;
heritage value of the built environment including within Conservation Areas, so that development enhances the character and appearance of these places; and
the scale of underused and previously used land which is ill suited to developers needs, is costly to tackle and is not helped by low land values, before it can be brought back into beneficial use.
5.7 These constraints and ways of overcoming them are explored in detail in later sections. They also need tackling in a co-ordinated and focused way if the city has any chance of bringing about the scale of physical change suggested.
5.8 If development proceeds at a much reduced rate, along the lines of Scenerio A, then we will not need to make provision for development as outlined, including making better use of land and premises within the River Hull Corridor. This may give rise to development blight if we allocate land which is then not used. So we need to be careful about which option and direction of travel we choose.
5.9 An alternative to the stepped approach could be to bring about development quicker than could be expected. If we want things to happen faster then we need to put measures in place to help the economy and housing markets, as outlined above. This does not mean having an overly flexible plan. What it does mean is having a plan of action to steer and guide change. This also means trying to bring forward land to meet development needs, sooner. It means developers need to consider their proposals in terms of a 'best fit' with the plan rather than railing against it.
5.10 There are things that need doing to ensure land is able to accommodate future development needs. Investment in assembling land to meet future needs is important. A programme of action is needed to ensure land is brought forward at the appropriate time and that other constraints to development are removed. Hull Forward will begin work on developing such an action plan in line with this emerging strategy.
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5.11 We need to bring a high degree of certainty for developers in reserving land for development. In the past there has been insufficient certainty for the operation of the market because there has been too much land available and a lot of this has been physically constrained. We need to ensure that developers needs are met but in a way which is of benefit to the community.
5.12 We must also ensure that planning permissions which are sought, do not undermine these allocations or plan objectives. This means taking into account lots of planning applications which may not have a significant impact on their own. The combined effects may have significant adverse effects. Such proposals only undermine plan objectives along with longer term growth potential. Effective monitoring is crucial here.
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A Broad, guiding principles A.1 There are a number of broad guiding principles that should be reflected in the Core Strategy. They come from policies at national, regional and other levels. They are fundamental and should be applied to the way future change in the city can be managed. Other principles outlined in the following section are derived from currently known or agreed regeneration priorities.
A.2 The broad principles cover such matters as sustainable development, sustainable communities, regeneration priorities, climate change, flood risk and transport. Relevant issues and options are outlined in turn.
Sustainable development A.3 Sustainable development means that our actions should meet the needs of today and at the same time not compromise the needs of future generations. When assessing whether development is sustainable, it means balancing the following:
economic prosperity;
nature and the natural environment;
social justice; and
use of finite natural resources.
A.4 The theme of sustainable development runs throughout the planning system. Planning Policy Statement (PPS) 1 ‘Delivering Sustainable Development’ lays out the key principles to ensure that development plans and decisions taken on planning applications contribute to the delivery of sustainable development. Although the planning system cannot deliver sustainable development single-handedly, it still has a lot to offer. For example, it can:
encourage business start-up units in areas of unemployment;
improve people’s quality of life through provision of high quality houses and green spaces;
help protect the natural environment by discouraging development on ‘greenfield’ sites;
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protect and enhance important natural habitats;
refuse to allow development that may prove unusable in the future, such as buildings that are vulnerable to flooding;
reduce air pollution and congestion by encouraging developments to be well connected to public transport and cycle networks; and
help reduce the use of finite resources through encouraging renewable energy and low-carbon building practices.
A.5 But what does sustainable development mean for Hull? We have to decide what our priorities are and how to balance conflicts of interest. In recent years, economic factors have been dominant in decision making. Social and environmental factors are critical to residents’ quality of life. There is an argument that a strong economy can help bring about social and environmental improvements.
A.6 A suggested objective in meeting future development needs is:
Objective 1
Become a more sustainable city by delivering more sustainable forms of development.
Option 1
Possible options in seeking to achieve this objective include:
1. environmental, social and economic factors should be given equal weight when assessing sustainability;
2. the environment should take precedence, followed by social issues, followed by economic issues; or
3. economic factors should be the main driver of change, because this is the best way to improve social and environmental factors.
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A.7 A suggested preferred option is to balance the environment, social and economic factors when assessing development proposals. Taking decisions in preference for economic ones is not considered sustainable. The recent Stern Report (2007) recommends that striving for economic growth with little regard for the state of the future environment can be very costly in the long run.
A.8 We will measure the performance of the preferred option by monitoring:
percentage of dwellings built to a Code for Sustainable Homes standard
percentage of developments with on-site renewable energy sources
percentage of large scale developments built in designated district centre or city centre
percentage of homes built on previously-developed sites
percentage of developments built against Environment Agency advice
car usage compared with walking, cycling and public transport usage
production of greenhouse gases
green space in the city (compared with locally-set city standards)
employment levels
A.9 This suggested preferred option will be delivered by all involved in future development. When assessing planning applications for development the Council will consider how well sustainable principles have been addressed. The Council has prepared a Sustainable Development Supplementary Planning Document which provides more details.
Sustainable communities A.10 Creating sustainable communities means putting sustainable development into practice. The Council is committed to creating and maintaining sustainable communities. There are many different ideas as to what a sustainable community is, but we like to think of them as places where people want to live and work, now and in the future.
A.11 It is important that places continue to be popular, even after people’s life circumstances change – whether they leave home, have children, retire, etc. In the past the city has seen a gradual drop in its population, a trend which has only recently started to reverse.
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The population needs to increase or at least remain roughly the same in order to avoid adverse effects on vital services such as schools, health facilities and shops. We also need to think about how the needs of residents might change in order to plan for suitable new homes and other services.
A.12 We know the following:
The city is home to around 256,000, with a total of 875,000 living in the Hull and Humber ports city-region (2006 estimates).
Between 1991 and 2001 the population declined by 5%, with most moving to the East Riding. But since 2001, the population has increased by 2.5%.
Estimates from 2004 tell us that the population will increase by 2.7% to around 260,000 in 2029. But with recent, higher than predicted rises in population, this estimate may go up.
The population is ageing and there will be fewer younger people.
The city has a small ethnic population, but since 2004 there has been an increasing number of workers coming from eastern Europe.
Around 12% of the city’s population are in the AB social group (e.g. higher and intermediate managerial / administrative / professional groups). That is compared with 22% nationally.
A.13 The city is recognised as a Regional Centre by the Yorkshire and Humber Plan. It provides jobs, leisure facilities and health services for a wider area. The city centre remains popular, despite competing with Leeds, Sheffield and York. It is important for the city's future that it continues competing in this role.
A.14 Development outside the city could also provide job opportunities fro those living in Hull. However, there are issues around people continuing to move out of the city especially if jobs are close to where people want and can afford to live. We need to ensure that opportunities near to Hull, complement and do not compete with jobs being sought within Hull.
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A.15 A suggested objective concerning population change in the city is:
Objective 2
Create and maintain sustainable communities so that the city's population stabilises and then grows.
Option 2
The options to address this objective include:
1. Development should be planned so that it occurs in the right places at the right time to meet future needs.
2. Attract major investment in Hull, including the city centre, shopping / other centres, the port, and other key growth clusters depending on the nature of the location.
3. Encourage employment opportunities within commuting distance of the city to broaden job opportunities for city residents, especially along the A63 corridor, provided these opportunities complement those being sought in Hull.
A.16 A suggested preferred option is a combination of all these options.
A.17 We will measure the performance of the preferred option by monitoring:
population change (retaining existing families and attracting new people);
residents' satisfaction and happiness levels;
percentage of homes conforming to the Government's Decent Homes standard;
air quality (air pollution from factories and roads);
water quality (in rivers and drains);
crime levels and the perceived fear of crime;
car usage compared with walking, cycling and public transport usage;
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production of greenhouse gases;
percentage of children living in poverty;
levels of physical activity and sports participation;
green space in the city (compared with locally-set city standards);
life expectancy and other environmentally-related health indicators (heart disease, diabetes);
educational attainment;
employment levels; and
average earnings.
A.18 This preferred option will be delivered by the Council working with other key developers and delivery agents, including Hull Forward. Phasing of development will be crucial to achieving focused investment in places.
Regeneration priorities A.19 In planning for a future city we need to know the current state of well being of the city's community. The Government's index of multiple deprivation (IMD) examines income, crime, employment, health, education, housing, geographical access to services and child poverty. This provides a useful way of measuring the location and scale of well being across the city.
A.20 Parts of Hull are some of the most deprived places in the country. In 2004, Hull was the ninth most deprived local authority in England (out of 354), but improved slightly to eleventh place in 2007. 43% of the city's residents live in the top 10% most deprived wards in England. Those wards lie within the inner-city and the outer estates, as shown on Map A.1. There are other parts of the city which are on the margins of becoming deprived.
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Map A.1 Areas in Hull that fall within the 10% most deprived places in England.
Index of Multiple Deprivation 2007 Top 10 percent most deprived areas Within top 10% ¯ Outside top 10%
A.21 It is for these reasons that there are some major regeneration initiatives and development schemes taking place in the city. On the whole, these schemes are focused on those places which are most deprived, such as the inner city and outer estates. The City Centre also plays a significant role that benefits the whole of the city. These major initiatives and schemes include:
Housing market renewal - led by Gateway Pathfinder, aimed at turning around neighbourhoods by building new homes and refurbishing old ones;
Education - led by 'Transforming our Primary Schools' and 'Building Schools for the Future', that aims to build and refurbish schools;
Health - led by Local Improvement Finance Trust, aiming to create new and improved surgeries and health care centres;
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New community hubs - these combine many community services in one site, such as a library, customer service centre, cafe and health care; and
City centre redevelopment and local economy - led by Hull Forward which is a partnership between the Council, Yorkshire Forward and English Partnerships aimed at revitalising the economic heart of the city.
A.22 These follow from significant regeneration schemes which have taken place in the city since around 1980 including Urban Programme, Single Regeneration Budget, New Deal for Communities and Neighbourhood Renewal Funding. New approaches are also being considered including Local Area Agreements and Working Neighbourhoods Fund.
A.23 In terms of housing market renewal, Gateway's strategy for investment is to focus first on where they can achieve most impact. They use the following criteria for deciding which areas to prioritise for regeneration:
ability for the area to be linked to future economic activity along the Humber;
tackle the worst housing conditions;
target where there is opportunity to create new neighbourhoods with a better quality and choice of housing; and
start where communities are committed to action and change.
A.24 Currently, the areas that Gateway are concentrating on are to the east and the west of the city, as illustrated by 'Priority Neighbourhood Group 1' on the Map A.2. The plan is then to move to outer estates including parts of Orchard Park and Bransholme and help them become more thriving communities.
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Map A.2 Gateway Regeneration Areas
A.25 Area Action Plans are being prepared for the renewal areas in support of Gateway initiatives in east and west Hull. Careful consideration is needed to realise physical development and change within the area including bringing the community along with these changes. Long term delivery of housing will need appropriate phasing to trigger other community benefits, arising from uplift in land values. These Area Action Plans will guide investment for:
new houses and improvement to existing homes to transform neighbourhoods into places where people want to live;
creating mixed tenure housing including significant affordable housing;
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new business and transport measures to improve access to jobs, and movement of people and goods, to and within the area;
improved street design so they are pedestrian friendly;
environmental improvements including new and improved greenspaces;
new community facilities;
considering new shopping facilities provided these are in keeping with the centre, but not for large scale food retailing;
measures to tackle and reduce anti-social behaviour; and
improving shopping centres including shop fronts, kerbside parking and other environmental improvements such as tree planting, to add visual interest and improve overall amenity. New uses, better lighting and CCTV could be used to improve activity to help overcome a 'fortress mentality'.
A.26 An Area Action Plan for the City Centre is also being drafted and is at an advanced stage. This follows from long standing opportunities identified in the current Local Plan and more up to date Masterplan. Focus for investment here is on realising comprehensive development of key areas. Improved national economic trends have helped bring about development in these locations.
A.27 Regeneration often requires substantial investment and concerted action targeted at places over considerable time. Physical change including new buildings and spaces is often required. Needs are also large scale and resources limited so not all problems can be tackled early in the plan period. The planning system can influence and support where and when investment should occur. Based on the current and potential development needs in the city the following locations are put forward as suggested regeneration priorities:
First priority: City Centre, Newington and St Andrew's (West Hull) and Holderness Road Corridor (East Hull); and
Second Priority: Inner Core, River Hull Corridor, Orchard Park and North Bransholme (North Hull).
A.28 The broad locations of these areas are shown on Map A.2 above.
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A.29 A suggested objective to address overall regeneration issues in the city is:
Objective 3
To enhance the quality of life in the city, reduce poverty and inequality and improve the city's image as a desirable and sustainable place to live, through determining regeneration priorities.
A.30 Suggested options to meet this objective include the following:
Options 3
1. Confirm the initial primary focus as being the City Centre, Newington and St Andrew's Area (West Hull) and Holderness Road Corridor (East Hull);
2. second priority being the Inner City, River Hull Corridor, Orchard Park and North Bransholme (North Hull);
3. ensure that current priorities are not undermined, for example, by not allowing proposals which may threaten their success; or
4. taking precautionary measures for those neighbourhoods or areas liable to greater deprivation.
A.31 A suggested way forward includes a combination of these options.
A.32 We will measure regeneration performance through assessing the following indicators, including:
Index of multiple deprivation;
incidence of crime;
jobs retained and created; and
house completions and conversions within the Gateway areas compared to outside them.
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A.33 Responsibility for regeneration is wide ranging. The following organisations should take the lead in developing the following:
City Council - by establishing programmes of action and co-ordinated decision making in consultation with the relevant key agencies and consultees;
Hull Forward and Gateway - these are the delivery agencies responsible for enabling physical change; and
Developers - by focusing major development within those areas identified as regeneration priorities.
Climate change A.34 The climate is changing and evidence suggests that it is caused by the increased concentrations of ‘greenhouse gases’ in the atmosphere. The main greenhouse gas is carbon dioxide, and emissions of it can be reduced by being more energy efficient, reducing the need for travel, and greater use of renewable energy sources. At the same time we need to be aware that some climate change is now unavoidable so we need to take precautions against the higher probability of extreme weather events. The Government sets out planning objectives for Councils and others to achieve in terms of carbon dioxide emission reductions and use of renewable energy in its Planning Policy Statement 1 Supplement, Planning and Climate Change, 2007.
A.35 The Government's target is to bring about a 12% reduction in carbon dioxide emissions by 2012, by 26-32% by 2020 and a 60% reduction by 2050. The Government also want 10% of electricity production to be from renewable sources by 2010 and 15% by 2015. Regional Spatial Strategy sets targets for the city of 6 megawatts by 2010 (equivalent to 2 large wind turbines) and 39MW by 2021.
A.36 Policies are needed at a local level to address the causes and potential impacts of climate change. The Council's Climate Change Strategy contains policies on reducing energy use and emissions of carbon dioxide and other greenhouse gases, so that all new proposals have a smaller ‘carbon footprint’. An action programme is under development which will explore how some of these challenges can be tackled.
A.37 The strategy contains targets which mirror those set at the national and regional levels. It is suggested these targets be used in the Core Strategy although further details about where and how these can be achieved are needed. This will be undertaken through work on the action programme being developed by the Council with other partners. Work in the City Policies DPD could set out the conclusions from such a programme.
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A.38 The HDF should consider how best to tackle climate change by:
increasing the use of renewable energy including potential for using on-site 'micro-renewables';
improving energy efficiency, for example, by greater levels of insulation and by not leaving devices on stand-by;
minimising risks to flooding and other mitigation measures (see separate section below).
making efficient use of land by re-using previously used land rather than greenfield;
increasing the use of the port and inland waterways to move goods in an efficient and low carbon manner;
reducing the number of motorised journeys by ensuring development is accessible by walkers and cyclists; and
reducing waste and encouraging greater recycling. A reduction in our consumption of manufactured materials would reduce our carbon footprints.
A.39 These are broad aims of what we should be doing. They can only be achieved if the designs of new developments are improved, sometimes subtly, sometimes radically. Design should consider, amongst other things, the layout and orientation of buildings, their use of natural shading and lighting, and how renewable energy technologies can be seamlessly incorporated. The Council has begun to lay down new guidelines for 'greener' designs in its Sustainable Development SPD. New development should take issues on board and provide innovative solutions to them.
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A.40 A suggested objective in addressing climate change through local action is:
Objective 4
To seek to ensure that everyone knows about and addresses climate change through taking appropriate action and that new development has a reduced carbon footprint.
Option 4
The options in addressing this objective include:
1. require a percentage of energy requirements to be provided through on-site renewable energy for all new development, and increase the requirements year-on-year, on the basis of targets set out in para A.34 and other work being progressed through the Council's Climate Change action programme;
2. only require large-scale developments to incorporate on-site renewable energy technology;
3. passively support sustainable development and renewable energy proposals (and follow national guidance where applicable);
4. identify suitable locations for renewable schemes, such as wind turbines, and seek contributions from developers to fund these schemes if ‘on-site’ renewable energy is not achievable;
5. require new houses to be built to high Code for Sustainable Home standards;
6. ensure that the construction methods are ‘low carbon’, e.g. limited use of cement and locally-sourced materials;
7. maximise energy efficiency through design requirements (e.g. orientation of buildings, layout of roads, etc); and
8. locating uses in minimising the need to travel by private car or from greater use of the port and River Hull;
9. all developments to maximise waste recycling (construction waste or provision of recycling bins).
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A.41 A suggested way forward includes a combination of these options.
A.42 We will measure performance of a preferred option by monitoring:
estimated green house gas emissions in the city;
the percentage of new developments with on-site renewable energy sources;
the number and size of stand-alone renewable energy sources;
other schemes for reducing carbon (e.g. district heat and power schemes); and
car usage compared with walking, cycling and public transport usage.
A.43 Responsibility for climate change is wide ranging. The following organisations should take the lead in developing the following:
City Council - establishing programmes of action and co-ordinated decision making in consultation with the relevant key agencies and consultees;
Hull Forward and Gateway - agencies responsible for enabling sustainable physical change in preparing Area Action Plans and their delivery; and
developers - to make best use of sustainability principles.
Risk of flooding A.44 The risk of flooding is an important planning consideration and one that is linked to concerns over climate change. The Government has adopted a precautionary approach to deal with flood risk, in particular by directing new development towards low risk areas. Planning Policy Statement 25 : Development and Flood Risk (PPS25) and its associated practice guide provides advice on planning and flood risk.
A.45 The stance of directing development to areas of low flood risk is carried through to the regional level within the Yorkshire and Humber Plan. Policy ENV1 makes specific reference to flood management helping to facilitate development in Hull and emphasis is given to the need to protect towns at risk from tidal flooding.
A.46 Other work on flood risk relevant to Hull includes the Humber Flood Risk Management Strategy and River Hull Flood Risk Management Strategy (both produced by the Environment Agency). These documents consider how flood risk will be managed over the next 100 years from the Humber Estuary and River Hull.
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A.47 Flood risk is a particularly important issue for Hull as over 90% of the city is located within a high flood risk area as indicated by the Environment Agency's Flood Map. PPS 25 tells us that the high risk area is vulnerable to a 1 in 100 year river flood and 1 in 200 year tidal risk.
A.48 The city experienced significant flooding in Summer 2007 where over 8000 properties were flooded from heavy rainfall and the sewers backing up. Following these floods an Independent Review Board report was published in November 2007 alongside the Environment Agency's review. Both reports call for a review of flood protection standards for the sewer network and greater partnership working between all drainage authorities.
A.49 A Strategic Flood Risk Assessment undertaken by the Council provides a thorough understanding of flood risk. It considers the most appropriate development locations and provides design guidance to protect against the risk of flooding. This makes clear that development will continue to be needed within the city. National and regional policy of avoiding development in high flood risk areas, is also not considered appropriate to Hull. This is due to its unique characteristics in terms of flood risk.
A.50 The Strategic Flood Risk Assessment (SFRA) provides a detailed understanding of flood risk to the city from river, rainfall and tidal events. The SFRA places Hull into six zones of flood risk and recommends development should be directed to areas of lowest risk where possible. Map A.3 details these zones. Only the areas with the highest risk of flooding (functional floodplain) are not suitable for development. This covers a very small part of the city.
A.51 Other key findings of the SFRA are:
the areas of highest risk are located along the River Hull and fronting the Humber Estuary, where detailed flood risk assessments will be required;
there are other less risky areas in the city where floor levels should be raised to between 300-600mm to accommodate this level of risk;
there are locations and opportunities for ‘ponding’ of water, (by diverting water to, or protecting existing greenspace, for example) to cope with the potential increased likelihood of flash flooding;
the capacity of the existing drainage infrastructure needs reviewing including any adaptations to cope with heavy rainfall events;
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there is a need for further flood protection measures especially along the Humber frontage, the River Hull, as well as an embankment along the eastern side of Bransholme; design guidance should be used to improve ‘flood proofing’ of new developments including provision for safe refuges and evacuation plans; and within new development quantities of hardstanding should be kept to a minimum and permeable surfaces be used where possible. In addition, development should be designed to minimise surface water run-off into the sewer system.
Map A.3 Hull Flood Risks
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A.52 A suggested objective in terms of how planning can help in reducing the risk of flooding is:
Objective 5
To seek to ensure that new development is located in areas of low risk and uses vulnerable to flooding are located or designed appropriately.
Option 5
The options to address this objective include:
1. maximise the use of greenspaces as ‘holding ponds’ to minimise the risk of flooding;
2. applying greater design standards or requirements in high flood risk areas including restricting vulnerable uses (such as basement flats, ground floor residential, care homes, or emergency services) and not allow any development in the functional floodplain;
3. permit development within flood risk areas where adequate flood protection can be achieved both for the new development and elsewhere;
4. control surface water run off from new development through the use of traditional measures such as balancing tanks and highway drainage pipes linked to the main sewer;
5. restrict surface water run off from new development through greater use of sustainable drainage systems (SUDs), which mimic natural drainage;
6. not allow any development in the high risk areas; or
7. work with the East Riding to designate areas for flood storage beyond the city boundary which minimise the risk of flooding to people and property.
A.53 A suggested preferred option is to combine these options.
A.54 We will measure performance of a preferred option by monitoring:
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the location and adaptation of development proposals;
the number of planning permissions granted contrary to Environment Agency sustained objections; and
how many flood risk assessments are sent to the Environment Agency for comment.
Transport system and getting about A.55 The efficient movement of people and goods should be a fundamental part of a new plan for the city. An efficient transport system can widen access to opportunities for local people and assist regeneration. However, a growing demand for mobility is taking its toll on the environment. Traffic congestion is increasing, as is pollution. We need a more sustainable transport system to balance the needs of the economy with the environment, as well as meeting the needs of the whole community.
A.56 Government policy, as set out in Planning Policy Guidance 13 - Transport, aims to promote more sustainable travel choices for people and freight, promote accessibility by public transport, walking and cycling, and reduce the need to travel, especially by car.
A.57 The Local Transport Plan (2006) LTP reports that Hull has relatively low levels of car ownership and above average bus and cycle use. However, this is changing as car ownership increases and more people travel to work by car. This has led to facilities being developed away from established centres (such as in ‘out of town’ retail parks) leading to the decline of local facilities. With fewer local facilities people become increasingly dependent on the private car. People without cars (almost half of all households in Hull) cannot so easily access facilities located away from existing centres. The aim of the LTP and Government policy is to increase accessibility for all rather than mobility for only some people.
A.58 Key facts about transport in Hull (from the 2001 Census) include:
44% of all households do not own a car which is well above the national average of 27%; and
55.6% of residents in employment travel to work by car and 13.4% by public transport. Comparative proportions for England are 61% and 14.9% (which is skewed by public transport within London) respectively. Significantly, 11.7% travel by bicycle in Hull compared to 2.8% in England.
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Measures needed to improve the transport system A.59 The Local Plan proposed some major transport schemes. Several of these have been completed, including the city centre public transport interchange, Ennerdale bridge, park and ride at Priory Park, and Hedon Road widening / improvements. Other schemes which have not been completed but which may be worth carrying forward into the new plan include:
Great Union Street as part of an eastern orbital;
increasing capacity on the A63 Castle Street;
eastern relief road;
various junction improvements;
various cycle and pedestrian schemes;
bus priority corridors; and
park and ride sites serving north and east Hull.
A.60 These proposals were based on the Greater Hull Transportation Study completed in 1991, which looked at the long term future of transport in the wider Hull Travel to Work Area and promoted a modal shift from private cars to public transport and cycling use. More recently, the Hull Multi-Modal Study (2002) reviewed the 1991 study and examined opportunities along the east/west transport corridor. It made recommendations about the A63 Castle Street, ruled out a light rail system (on the basis of it not being viable) but also suggested there was potential in guided bus and rail freight improvements. Current transport studies are examining city centre movement and parking as well as park and ride potential. A sub-regional transport vision is also being prepared.
A.61 The recent Local Transport Plan (2006) outlines schemes needed to make the city function better. Some of these will require land. The wider significance of these schemes should also be seen in terms of opening up further development opportunities. The A63 east-west route requires unlocking as a priority. Overall, a new transport strategy for the city is reliant upon the following schemes becoming a reality:
park and ride proposals serving east and north Hull;
quality bus corridors;
traffic calming measures in housing areas;
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A63 Castle Street improvement; and
rail freight carrying capacity to the port.
A.62 There are issues about how and when these schemes should occur in supporting city growth/development. These also need to be considered in terms of available Government money, which is limited and is now being managed by a Regional Transport Board. There are transport schemes across the region which will compete for these funds. Studies and a transport strategy is needed to guide future transport investment priorities.
A.63 A suggested objective in terms of how planning can help in realising the Local Transport Plan is:
Objective 6
To improve accessibility and encourage the efficient and safe movement of people and goods.
Option 6
The options to address this objective include:
1. support the current Local Transport Plan by reserving land and routes related to those schemes currently proposed;
2. work with the East Riding of Yorkshire, to establish further transport schemes of major significance to the city;
3. maximise the amount of freight carried by rail and water to reduce pressure on the A63 Castle Street;
4. locate new car parking on park and ride sites to reduce the need for parking in the city centre and the demands on the road system; or
5. develop new cycle and pedestrian routes along green corridors away from main roads.
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A.64 The LTP has already been the subject of extensive consultation so there is no need to repeat this exercise. However, options should be explored to determine the best way to progress the LTP. A suggested preferred option is to work toward combining these options.
A.65 We will measure performance of a preferred option by monitoring the development of transport schemes alongside more general transport indicators.
Infrastructure and development funding A.66 In January 2008 the Government announced its intention to levy charges on commercial and housing development to help fund necessary infrastructure. More detail governing arrangements for a new Community Infrastructure Levy (CIL) is expected soon as a basis to support housing and economic growth. Funds raised could be used for major infrastructure such as transport schemes but also for things that improve quality of life in a neighbourhood. The Government makes it clear that CIL is not intended to replace other significant public investment being made in places but should not be applied if it makes development unviable.
A.67 The Government suggests that those who benefit financially when planning permission is given should share some of that gain with the community to help fund necessary infrastructure. Developers will have greater certainty in terms of what they will be expected to contribute, thus speeding up the pace of development.
A.68 In a similar approach to that of the CIL, the City Council already requires Planning Obligations, to meet requirements of the Local Plan. These differ from CIL in that they are used to make development acceptable in planning terms through securing contributions towards such things as roads or other facilities like open space. The City Council has specific requirements in terms of seeking open space provision and waste recycling facilities. Funds obtained are being used to improve provision near to the development.
A.69 The City Council is also looking to extend current contributions sought from developers through the City Centre Area Action Plan. The intention is to ensure that developers pay a share of the impacts of their development on infrastructure, services and amenities, through charges set to improve city centre public realm and transport. These are, in effect the type of approach that the Government is now proposing in the CIL.
A.70 There needs to be further consideration regarding the use of Planning Obligations and proposed CIL over the life of the Core Strategy. It is not yet clear what effect the new approach will have on Planning Obligations. CIL is optional but more information is needed to justify levying charges for such things as new or improvements to schools,
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parks, health centres, public transport provision, cycling facilities, sports facilities, flood defences, highway improvements or affordable housing. The extent of any levy would be dependent upon performance of the wider economy, the local rate of growth, the level of current (and anticipated) public investment in facilities and any planned approach to assessing future infrastructure needs. There may well be prospects for working up a levy that could be raised for sub-regional or regionally significant infrastructure.
A.71 Proposed objective in meeting future infrastructure needs is;
Objective 7
Secure infrastructure necessary to the sustainable development of the city.
A.72 Suggested options to meet this objective includes:
Options 7
1. prepare a scoping report to assess the potential usefulness of CIL toward future investment programmes. This could be done before a full assessment to consider whether it can secure necessary infrastructure;
2. consider alternative contributions through Planning Obligations in addition to those currently sought for open spaces and recycling; or
3. not to progress consideration of wider use of a Community Infrastructure Levy.
A.73 In effect, a suggested preferred option is already in place in the form of a mix of Planning Obligations for Open Space/recycling facilities alongside a levy on developers for city centre infrastructure being taken forward in the City Centre Area Action Plan.
A.74 The City Council will take the lead in putting forward, and reviewing the need for, setting charges through a Community Infrastructure Levy and using Planning Obligations, in consultation with key delivery agencies and developers.
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B Quality of life Future housing provision - overall scale and distribution B.1 National housing policy (PPS3 and Housing Green Paper) is focused on delivering more affordable and a wider choice of homes for all. Hull is one of nine nationally recognised Pathfinder areas and Gateway has a remit to improve the local housing market. The Community Strategy and Hull Housing Strategy recognise that housing is a key part to sustainable communities. The City Council has a duty to plan for future housing provision in terms of overall scale, where new housing should occur and what best use can be made of the existing stock.
B.2 The City Council, working in partnership with local home providers, Gateway and others, has commissioned two pieces of work to help determine new housing provision. A Housing Market Assessment has helped inform overall requirements and details around affordability. Although not complete until the end of the year, a Housing Land Availability Assessment will help determine potential housing sites and areas although many planning permissions exist to be used up. There is considerable scope for new housing within the Gateway defined areas. In determining future housing needs the City Council has also been working closely with Gateway Pathfinder and OneHull (the Local Strategic Partnership) in developing a Spatial Strategy, along with East Riding of Yorkshire Council in preparing their Core Strategy.
B.3 We have a good idea about the areas we want to develop based on the Local Plan. Although this plan is 'saved' under the new planning system it is becoming increasingly out of date. In the short to medium term, opportunities for housing include the City Centre, Kingswood, Gateway Areas of West and East Hull, alongside existing planning permissions. Things become less certain in looking further on. This raises points for discussion about appropriate sites. We need to be working now to ensure that longer term sites and areas are able to be realised. In doing so we provide certainty for house builders and other city investors.
Overall scale
B.4 The Council is required to manage housing land supply within limits set out in Regional Spatial Strategy. Draft Regional Spatial Strategy (2008) sets out an overall housing requirement for Hull between the years 2004 and 2026 as being around 24,000 gross dwellings. 'Gross' numbers refers to actual houses to be built taking into account estimates of houses to replace those cleared and re-use of as many vacant houses as possible. The figures which follow are all 'gross' estimates.
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B.5 Over the period to 2026, Regional Spatial Strategy sets out housing requirements to be achieved in Hull, although it recognises that more up to date information can be used to determine a particular direction. Importantly for Hull, Regional Spatial Strategy puts forward an 'urban growth' based approach. We have also prepared a more up to date Housing Market Assessment to determine local requirements.
B.6 The current draft Regional Spatial Strategy outlines 600 units being anticipated annually between 2004 and 2008 and 1200 gross every year between 2008 and 2026. It also advises that in the initial plan phases fewer than 1200 dwellings are likely to occur within the Hull housing market area but leaves the detail to be determined locally. A ‘plan, monitor and manage’ approach is also suggested in seeking to ensure that housing completions meet these requirements.
B.7 The city's Housing Market Assessment estimates the number of households to the year 2026 depending on current or high growth scenarios. These translate to between 15,800 and 23,100 additional dwellings between 2008 and 2026. The upper end of these estimates compares reasonably well with those requirements outlined in RSS. Factoring in current estimates of replacement through clearance and re-use of vacant stock, reduces these broad requirements to around 880 and 1,290 dwellings per year over the period 2008 to 2026, depending on the scenario.
B.8 In estimating future housing requirements, the HMA recommends the Council follow Government prescribed guidelines. 18,400 dwellings is suggested as a starting point for new housing across the city needed between 2008 and 2026. This updates the picture provided in Regional Spatial Strategy and takes into account houses to be replaced through demolition. Further detail about the need for further land is explored below. Appropriate phasing and nature of future needs is also considered in the following sections.
B.9 Current records of land availability show there is capacity for around 9,080 dwellings (based on an estimate of planning permissions and undeveloped land allocated in the existing Local Plan) in the 'pipeline' of which 4,300 dwellings have planning permission and are likely to be built in the next 5 years. Table B.1 shows the general location of these sites as well as whether they are on 'greenfield' or on previously developed 'brownfield' land.
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Table B.1 Housing land supply (at July 2007)
Location Development plots Greenfield Brownfield with planning permission or allocated in the ‘saved’ Local Plan) Kingswood 4,400 4,400 0 City Centre 1,570 0 1,570 Gateway east 280 30 250 Gateway west 690 280 410 Other 2,140 410 1,730 Total 9,080 5,120 (56%) 3,960 (44%)
B.10 Table B.2 shows the additional land to meet 2026 housing requirement estimates. This is based on what already exists in the development pipeline minus the suggested housing requirement.
B.11 There is a need to allocate land for around a further 9,320 units to the year 2026 (from 2008) in the HDF. This equates to the size of the parcel of land already allocated for housing at Kingswood (based on an average density of around 35 dwellings per hectare). However, it should be noted that this is an estimate of overall provision, that densities will vary widely and more immediate needs can be met.
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Table B.2 Projected housing requirements based on RSS and the HMA
Future requirements Indicative figures RSS requirement 2004 - 2026 24,000 Housing requirement based on HMA conclusions (range of 18,400 estimated housing requirement based on scenarios, shown in brackets) 2008-2026 (15,800 to 23,150)
Existing sites with planning permission or already allocated in 9,080 the Local Plan Further allocations required in the HDF 2008 - 2026 based on 9,320 HMA
B.12 At current rates of development (around 650 dwellings per year, based on the annual average completion rate for the last 5 years) there is sufficient land to meet more immediate requirements. However, two thirds of the housing completions made in the last 5 years were on 'windfall' sites. This means they have not been completed on sites previously allocated in plans or derived from a 'planned approach' to meeting housing requirements. Figure B.1 highlights this point. Government policy (PPS3) also requires that estimating and then making provision in plans for windfalls is no longer appropriate.
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Figure B.1 Windfall completions 1999-2007
Windfall Completions 1999-2007
700
600 600
513 500
396 399 400 382 380 353 338 297 300 250 234 219 200 165 154 128 113 100
0 1999 to 2000 2000 to 2001 2001 to 2002 2002 to 2003 2003 to 2004 2004 to 2005 2005 to 2006 2006 to 2007
Windfall Completions Non Windfall Completions
Suggested phasing and distribution
B.13 Making land available for future housing requires the Council, in working with others, to agree an approach which shows where and when new housing should occur. This needs managing in a way that supports the housing market. Government advice on Core Strategies suggests that broad locations for housing and other main land uses should also be shown on a Key Diagram. This should guide and help focus investment and provide greater certainty for the housing market.
B.14 There are a number of planning permissions and commitments which exist across the city suitable to meet more immediate needs. Longer term, the city will have to develop more houses if it is to meet RSS requirements or local estimates established in the HMA. We also need to make sure that new housing happens in a way which does not undermine regeneration priorities (see Section A) and that more difficult previously developed land is used first (see next Section).
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B.15 We have estimated long term needs to 2026 based on current commitments and what potential there is across the city. Table B.3 makes suggestions about locations for meeting these longer term needs. More precise estimates about potential locations will be considered once the Housing Land Availability Assessment is completed and Area Action Plans for the Gateway areas are at a more advanced stage.
Table B.3 Housing potential in Hull to 2026
Location Remaining Estimated development potential to potential at July 2026 (to be 2007(sites with determined planning through Commentary permission or Housing Land allocated in the Assessment) ‘saved’ Local Plan) Kingswood 6,000 Could mean the re-allocation of 4,400 some employment land City Centre 4,000 Includes 3,000 dwellings to 2016 1,570 in City Centre Area Action Plan Gateway east 2,000 Allocations to be determined 280 through Area Action Plan Gateway west 2,000 Allocations to be determined 690 through Area Action Plan Other 4,400 Potential within the Inner Core, 2,140 River Hull Corridor or other Gateway priority areas Total 9,080 18,400
B.16 We will not achieve (or even exceed) these requirements without making longer term provision now. Not all houses will be built in one go either. There is a need to ensure that development in the city happens in a co-ordinated way so that it supports the housing market and regeneration priorities. If it does not and we go back to allowing lots of windfall sites, then this will undermine the market. It will more than likely mean that the Council and Gateway will have to deal with increasing abandonment.
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B.17 In supporting the housing market and wider regeneration needs, a 'stepped approach' to developing sites across the city is suggested as an option. This could mean building 650 dwellings per year in the short term, to moderate building rates (around 1000 units a year) mid plan term followed by higher build rates (over 1300 units a year) toward the back end of the plan period. This would have to be complemented by phased release of sites within the wider Hull Housing market area including within East Riding of Yorkshire. Annual monitoring could help determine future land release needs over the plan period, in accordance with these figures.
B.18 Assumptions used in determining these broad requirements include:
potential of Gateway to re-model areas through the Area Action Plan process which will involve communities in helping decide the scale and pace of change in their neighbourhoods;
giving time to allow the market to react and deliver;
commitments made at Kingswood and proposed allocations coming forward in the city centre and with other planning permissions;
likelihood that Kingswood will build out towards the back end of the plan period;
potential for 'urban villages' within the Inner City adjacent to the city centre boundary or River Hull Corridor, toward the back end of the plan period. This will be considered as part of the Housing Land Availability Assessment. Beyond this, extensions to the urban area should be considered; and
the city's requirements being complemented by land allocations and phased release within the Hull Housing Market area, being managed by East Riding of Yorkshire Council.
B.19 Most proposed new housing is likely to occur within Kingswood. This is where there is planning permission and agreement, until 2011, to build around 200 dwellings per year. Re-allocation of current employment land may be needed. The city centre is a further location for significant housing. Current rates of development here exceed 200 units per year although these tend to be high density apartments. There are other planning permissions and Local Plan allocations.
B.20 Given the existing commitments it is suggested we can best support the housing market by managing the release of sites over time, along the following lines:
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First phase (now to 2016) – City Centre, Kingswood or within Newington and St Andrew's or Holderness Road Corridor areas, or sites with current planning permission;
Second phase (2016 to 2026) - on sites which already have planning permission or previously used sites remaining from First Phase, or those previously used sites within the Inner City or River Hull Corridor, as part of possible new 'urban villages' or along the River Humber waterfront or within other Gateway Priority areas; or
Third phase – (2021 to 2026 - note overlap with Second Phase) possible urban extension. This would only be required once the above are completed or all other opportunities within the city are exhausted or undeliverable.
B.21 Proposals outside of these phased priorities should demonstrate that:
it complements and does not undermine the emerging planning strategies for these areas or the city as a whole;
it leads to significant and wide ranging regeneration benefits;
loss of any previously developed land does not lead to employment land shortages necessary in supporting the local economy; and
it does not result in the loss of valued urban greenspaces necessary in supporting local character or recreation provision.
B.22 Exacting boundaries to sites for housing will be determined through development of Site Allocation and Area Action Plans, alongside the findings of the Housing Land Availability Assessment.
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B.23 A suggested objective in meeting future housing needs is:
Objective 8
Provide a suitable scale, distribution and phasing of housing to meet the city's future needs.
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Option 8
Possible options to address this objective might include:
A. in terms of overall scale:
1. use the Regional Spatial Strategy housing figure of around 1200 dwellings per year; or
2. use the more up to date local Housing Market Assessment requirement of around 1,000 dwellings per year.
B. in terms of future distribution:
1. continue to use current planning permissions and commitments in the Local Plan at Kingswood, within the City Centre and within Newington and St Andrew's or Holderness Road Corridor areas;
2. make further housing allocations to meet longer term needs at Kingswood, within the River Hull Corridor, Inner City or other Gateway Priority areas, subject to further investigation through the Housing Land Availability Assessment; or
3. meet the city's requirements by allocating land in East Riding of Yorkshire, at the edge of the city.
C. in terms of phasing:
1. use the sequence suggested in para B.19; or
2. work with East Riding of Yorkshire Council to seek to ensure the continuation of housing land supply restraint in its part of the Hull Housing Market Area, to help this sequencing.
B.24 A suggested preferred option is a combination of these options. In terms of overall scale the more up to date HMA figures should be followed. In terms of phasing and distributing future housing, existing commitments should be completed first followed by consideration of further land allocations at Kingswood, within the River Hull Corridor or Inner City or within other Gateway Priority Areas, before urban extensions are considered. An appropriate housing mix would be sought in these locations.
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B.25 We will measure performance of a preferred option by monitoring housing completions as well as other key indicators being devised as part of the HMA. Fundamentally though, a Housing Land Availability Assessment and Area Action Plans will be needed to assess where new housing can be realised.
B.26 Key people or organisations responsible for delivering these options, or variations of them, will include:
national and local house builders;
Gateway, who are responsible for housing market renewal including major re-development proposals in west and east Hull;
social housing providers such as Registered Social Landlords;
the Council, as the Local Planning Authority, has a role in reserving land for future homes as well as determining planning applications based on how well they agree with adopted planning policies;
land owners, to take account of the potential managed release process, particularly given the extent of existing planning permissions or commitments in meeting a 5 year land supply requirement; and
English Partnerships are likely to have a key role in bringing forward previously developed land and in considering potential for 'urban villages' within the River Hull Corridor and the Inner City.
B.27 More details in terms of delivery responsibilities will follow as the Housing Land Availability Assessment and other HDF related assessments are completed.
Housing mix B.28 Central Government policy (Housing Green Paper, 2007) makes clear that there should be plenty of choice and affordable homes for all. This includes having a varied housing mix to meet everyone's needs. It also sets out new targets for housing delivery across the country. High densities can occur in locations which are close to where people live or are accessible by public transport (Planning Policy Statement 3: Housing; and Planning Policy Guidance 13: Transport). Hull's Community Strategy also raises housing as an important part to people's future quality of life.
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B.29 The Hull Housing Market Assessment suggests that there is a strong housing market and employment relationship between Hull and East Riding of Yorkshire. The research concludes that there is a highly polarised housing market operating across two authorities. These are characterised by:
urban regeneration issues, tenure, house type and neighbourhood quality issues affecting Hull, as shown in low land values; and
intense housing pressure, affordability and access issues affecting East Riding, as shown in relatively higher land values.
B.30 These issues should be recognised through greater joint working between the two authorities and also by working with the market and to identify locations able to sustain higher proportions of affordable housing. Gateway Pathfinder is tackling these very issues across the Hull housing market area.
Housing type
B.31 We need a good mix of houses in the city if we are to make it an attractive place for people to move to and stay. We do not have a good mix at the moment. The city currently has around 105,000 households (groups of people living together in one dwelling) and 116,000 dwellings. Most of these are terraced (53%) and semi-detached (26%). There are very few detached (6%) family houses in the city. Recent completions (shown in Figure B.2 ) have been mostly for 2 and 3 bedroom houses.
B.32 We need to ensure that we get a better balance of house types in the future by planning for these and by influencing future planning decisions on development proposals. Creating a more balanced housing market is at the core of Gateway's approach to towards making the city a place that attracts lots of people.
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Figure B.2 Completions by bedroom numbers 2000-2007
NEWBUILD DWELLINGS COMPLETED 2000-2007 By Bedroom Numbers 900
800
700
600
500
400
300
200
100
0 2000 to 2001 2001 to 2002 2002 to 2003 2003 to 2004 2004 to 2005 2005 to 2006 2006 to 2007
1 Bedroom 2 Bedrooms 3 Bedrooms 4+ Bedrooms
B.33 The Hull Housing Market Assessment (HMA) highlights future housing needs. It points to a need for a more marked housing mix based on the stock that exists and what is needed to make Hull more attractive place to live. It points out that we should be moving away from large single tenure estates to more new mixed tenure ones.
B.34 Based on the HMA findings, Table B.4 sets out a suggested requirement based on house type. This can help determine and guide future land provision and discussions with developers about appropriate mix in different parts of the city. It is suggested that a broad aim should be to seek a mix of house types/sizes in all major new housing submissions (say over 15 dwellings). This could mean having a target of 50% being sought for larger family houses as part of that mix. Schemes within the city centre should aim to provide a more balanced mix of housing sizes and tenure although flats are still likely to be common place. These requirements could provide a basis for applying policies in a flexible way at site level.
B.35 Further details about suitable house types in different parts of the city is set out in the HMA. These will be considered further as part of the City Policies DPD and relevant Area Action Plan DPDs. In terms of accommodation within the city centre the figures
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provided should be taken as a minimum, as the City Centre Area Action Plan is proposing around 3,000 dwellings (many of which will be apartments) between 2003 and 2016.
Table B.4 Future housing mix to 2026
House type Suggested requirement to 2026 Large family housing (including 3 bed spaces 10,500 (58%) or more with substantial gardens) - Detached Moderate family housing (including 2 bed 6,000 (32%) spaces or more with garden space) - Semi-detached
Small family housing (including 2 bed spaces No provision needed or more) - Terraced
Apartment/flat or starter (up to 2 bed spaces 1,900 (10%) or more)
B.36 Future housing needs must take into account the ageing of the city's population. A greater range of house sizes (including bungalows as well as well designed flats) will be needed to meet these needs although there is already significant provision including Council, Housing Association and Extra Care housing. This could include more sheltered, extra care or care home development. This could be met through more efficient use of existing stock and new proposals should be designed in a way which limits the extent they have to be adapted in the future. New proposals could take into account the need for 'lifetime homes' standards. Building for Life and Lifetime Home standards could be applied to schemes across the city.
B.37 Meeting future gypsy and traveller's needs also has to be considered. A recent assessment of need concludes that further new provision is required but there is more immediate need to improve existing facilities on 4 sites (totalling 68 pitches) within the city at Newington, Wilmington, Bedford Street and Bankside. A total of around a further 36 permanent pitches and 5 transit pitches are needed over the short term (to 2011) in meeting family growth and limited turnover that currently takes place. A further 36 pitches to 2021 are then also needed.
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B.38 These requirements may well be met outside the city in East Riding of Yorkshire. The Council are required to assess and plan for these needs. Options include extending and improving existing sites, providing a number of wholly new ones or one large site. Locations will need to be sought depending on how rents for these facilities can be recycled alongside Government grants. Account should also be taken of land in Council ownership and flood risk issues.
Housing density and design
B.39 Housing densities (number of dwellings in any given area) occur in different parts of the city ranging from around 25 to 250 dwellings per hectare. We should plan by taking into account existing densities.
B.40 Different densities raise design choices that influence the form and scale of development. New development should respect the current surrounding built form unless there are unique opportunities to create wholly new places. Large sites (around 30 dwellings or more) offer the opportunity to provide varying densities. Table B.5 suggests densities that could be applied across the city.
Table B.5 Indicative range of housing density
Location Suggested density (dwellings per hectare) City centre up to 250 Along quality bus corridors or shopping up to 60 centres but within 400 metres Within areas of major change (Gateway, varied, but more than 50% at around 35 Kingswood or Inner City) Other parts of the city up to 35
B.41 New proposals should be built to high quality standards including application of the Code for Sustainable Homes and Secured by Design standards. The Code for Sustainable Homes measures impact on the environment. Secured by Design standards provides advice on making living safer.
B.42 The Code for Sustainable Homes awards a 1 to 6 star rating depending on how well the design meets certain tests. The Code sets minimum standards for energy and water use at each level. A 6 star rating of the Code equates to 'zero-carbon' emissions,
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for example. The Code therefore provides potential new home-buyers with better information about the environmental impact and potential running costs. Developers can show how environmentally sound their homes are.
B.43 The Government suggests that these targets will occur by tightening Building Regulations or by Local Authorities setting higher standards in their Development Plan Documents. However, these must be justified locally.
B.44 We face a number of options in terms of applying the Code in Hull. Firstly, we could wait for the Building Regulations to change but this could be a wasted opportunity. Alternatively, we could apply high standards now even though we do not know the impact of such proposals on scheme viability. A third option might be to wait until we have an evidence base to support an appropriate level, but this will also take time and be costly to determine.
B.45 We need to work with home providers to agree details and come up with a suitable approach. This may mean moving to higher ratings over the plan period. It is likely that any additional development costs, resulting from the Code, will be passed onto the land owner. There are opportunities to apply high ratings within the proposed areas of major change. Gateway are already applying a 3 star rating to their development schemes.
Affordable housing
B.46 The price of houses in Hull has risen considerably over recent years although there are signs of price reductions as the national economy begins to slow. This has resulted in people in the city not being able to afford houses to buy or rent. This is particularly marked in Hull as incomes are very low compared to other places in the region. There is a strong likelihood that these trends will continue so we need to provide for a balance of housing including affordable options, particularly for first time buyers or those who want to rent.
B.47 To get an indication of affordability, we need to know what the ratio is between household income, house prices and rents. The Hull Housing Market Assessment advises that we should plan for a range of affordable housing, particularly in places where there is potential for a greater mix on large sites (over 15 dwellings) or in areas of major physical change such as within the Gateway priority areas. The HMA also advises that housing providers should seek ways to help people access home ownership or rented homes, including greater use of shared equity schemes or low cost homes for sale or intermediate rent.
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B.48 An annual affordable housing requirement of around 20% is suggested in the Hull HMA, to cover an initial 5 year plan period. This is based on an entry level house price of £100,000 (although recent analysis puts this at around £90,000) and rents of 25% gross household income. This meets Regional Spatial Strategy target of up to 30% for Hull. The 20% would be applied to sites over a certain size (suggested as around 15 dwellings), to enable delivery of truly mixed tenure communities. This equates to around 200 dwellings per year as needing to be affordable.
B.49 Another option would be to consider a higher threshold. Gateway is promoting around 30% of homes being affordable in the immediate term, within the areas subject of major physical change.
B.50 The HMA also suggests ensuring affordable housing in locations where there is currently low levels of affordable stock (including social rented stock), such as in North Hull (Beverley and Bricknell wards) and the city centre. Affordability requirements for different parts of the city could be considered in more detail when preparing the City Policies and Area Action Plans, although the city centre plan is at an advanced stage.
B.51 Measures to achieve affordable homes in the city needs further consideration. This might include:
making better use of the Council's land and property assets including its large social rented stock;
re-allocating employment land to housing use should enable affordable homes to be achieved from uplift in land values;
through planning gain contributions; or
greater joint working with East Riding of Yorkshire, to jointly identify targets and requirements which may also help in lobbying for additional resources.
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B.52 A suggested objective in relation to providing future housing is:
Objective 9
Provide for the needs of existing and potential residents through appropriate housing mix, density and design.
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Option 9
Suggested options in tackling this objective include:
A. in terms of housing mix:
1. ensure there is a more balanced housing mix in the city by seeking (i) a greater proportion of large family houses;and (ii) in the city centre or locations accessible to public transport, high quality apartments;
2. greater mix of house types in locations where major change is occurring, including Gateway areas, the city centre and Kingswood;
3. ensure that more affordable housing is provided by applying an indicative local standard of 20% (or more in locations where major change is expected to occur) between 2008-2011, depending on the nature of the market; or
4. seek new provision for gypsies and travellers including improving or extending existing sites, provision of a number of new sites or a whole new site, either within the city or in East Riding of Yorkshire.
B. in terms of housing densities:
1. apply indicative density standards outlined in Table B.5 across the city; or
2. apply more exacting standards to different parts of the city.
C. in terms of design:
1. ensure that new housing is built to Lifetime Homes and meets Secured by Design standards;
2. apply the Code for Sustainable Homes now, before Building Regulation change, but what is appropriate is agreed with home providers;
3. work toward higher ratings of the Sustainable Homes Code provided this would not unduly harm scheme viability.
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B.53 A suggested preferred option is to combine all these options. Meeting these requirements means balancing the needs for more larger family housing with need for greater affordable housing and apartment living within the city centre. We may review the consent already granted for Kingswood to provide further affordable housing. The Area Action Plans being prepared should consider a suitable mix. More general density standards could be applied across the city. Other design standards could be applied including Lifetime Home, Secured by Design and Code for Sustainable Homes, although we need to agree standards with home providers.
B.54 We will measure performance of a preferred option by monitoring housing completions including the type and number of bedroom spaces in particular locations, along with schemes meeting Lifetime Home and Code for Sustainable Home standards.
B.55 Key people or organisations responsible for delivering these options (or some variation of them) will include:
home providers including national and local house builders;
Gateway, responsible for housing market renewal;
social housing providers including Registered Social Landlords;
the Council, as the Local Planning Authority, in reserving land for particular future homes through the plan making process in order to attract and retain families and key workers in the city;
the Council, responsible for gypsy and traveller sites and facilities; and
land owners, who should take account of future requirements including need for more affordable homes in the short term.
Meeting brownfield targets B.56 There is a strong steer in Government policy (Planning Policy Statement 3 - Housing) to re-use and recycle previously used (or brownfield) land in preference to using greenfield sites. A national annual target is set at 60% for all new housing to be provided on previously developed land. Regional Spatial Strategy sets out a 65% target for the whole of the region and it is expected that Hull should contribute to this. As a proposed regional city, Hull is expected to exceed these targets on average, over the plan period to 2026.
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B.57 The Government also suggests having a Local Brownfield Strategy to help determine how vacant previously developed land should be brought back into productive use, including for business, housing or other uses. Hull Forward will be working with the Council and English Partnerships to do this. We will consider where these sites are, what the constraints are (including costs) and how they can be overcome, as well as what end use may be viable. The conclusions of this work will help inform the proposed Site Allocations Development Plan Document.
B.58 In the last 8 years 60% of all new housing has been achieved on previously developed land. Figure B.3 shows the level of completions since 1999. An estimated further 7,000 dwellings will need to occur on previously used sites if Government targets are to be met. This is in addition to what already exists in the development pipeline estimated at around 3,960 dwellings.
Figure B.3 Houses built on brownfield land 1999-2007
Previously Developed Land (PDL) & Non Previously Developed Land (PDL) Completions 1999-2007
900 850 90%
800 80% 752 77% 75% 72% 700 677 70% 626 60% 64% 600 60% 547 550 557 546 55% 500 50% 482 50% 417 402 400 40% 362 40% 326 331 335 337340 304 300 270 30% 221 219 200 20% 155 144 92 100 10%
0 0% 1999 to 2000 to 2001 to 2002 to 2003 to 2004 to 2005 to 2006 to 2000 2001 2002 2003 2004 2005 2006 2007 Gross Non PDL completions Gross PDL completions Gross New Dwellings Percentage PDL Completions
B.59 High levels of completions on previously used land are unlikely to occur in a similar way to previously. This is because planning consents already granted at Kingswood and initial likely proposals within the Gateway areas.
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B.60 Given these complications it is suggested that more realistic targets be set linked to likely development scenarios. Table B.6 below, sets out an approach. Details about future use will need examining as part of the Local Brownfield Strategy and related Hull Housing Land Availability Assessment, including available measures or funds to bring these sites back into beneficial use.
Table B.6 Indicative housing completions on brownfield sites in Hull
House completions 2008-14 20015-20 2021-26 2008-26 % all completions on brownfield 50% 55% 60% sites 65+% (average)
Total completions 4,550 6,000 7,800 18,400 Total completions anticipated on 2,275 3,300 11,040 5,465 brownfield sites Total annual completions 325 550 525 anticipated on brownfield sites 845 (average)
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B.61 A suggested objective and options in meeting brownfield targets is:
Objective 10
To promote the most efficient use of land and premises in the city through developing previously developed sites in preference to greenfield sites, unless there are clear and demonstrable overriding reasons.
Option 10
The options to meet this objective include:
1. continue with the approach set out in Regional Spatial Strategy in terms of seeking to ensure high levels of housing on previously developed sites; or
2. use more realistic approach to achieve more housing on previously used land as outlined in Table B.6, subject to this being confirmed through a Local Brownfield Strategy and Housing Land Availability Assessment.
B.62 A suggested preferred option is to progress with a stepped approach, given the current realities faced in the city.
B.63 We will measure performance of a preferred option by monitoring housing completions of previously developed land in relation to suggested targets.
B.64 House building on previously developed sites will be the responsibility of a number of key players, including developers, the Council and agencies such as English Partnerships. Developers and English Partnerships will have key responsibilities for bringing forward sites to the market.
B.65 Hull Forward will have a key role in assembling sites, but solely for economic uses. Land owners have responsibility for underwriting the costs of removing contamination in conjunction with developers. The Council can assist the process of bringing forward brownfield sites by bringing key players together through the development of the HDF and in focusing on 'priorities' arising from the preparation of a Local Brownfield Strategy.
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Future shopping provision B.66 Shops are an important part of life. There are different forms of shopping available in the city. These include food and groceries (convenience goods), clothing or electricals (non-food comparison goods) and large household electrical goods, DIY or furniture (non-food or bulky goods).
B.67 There is significant retail investment in the city. We need to ensure that new investment in shopping supports this. The survival of shops and centres depends on the overall number and nature of people they are designed to serve. Some shops have small catchment areas, others large, depending on the goods being offered. Shops in the city centre have larger catchments than small local shops.
B.68 The vitality and viability of city and other shopping centres is promoted by the Government in Planning Policy Statement 6. This includes planning for their growth and development by focusing development in existing centres and by providing a quality and accessible environment. Local Planning Authorities are advised to implement these objectives by developing a hierarchy of centres (ranging from city centres to small local centres) and by assessing the need for further development.
How much new shopping do we need?
B.69 Two studies undertaken for the Council provide appropriate evidence and background to guide and help implement Government objectives. The Hull Retail Study 2003 (reviewed and updated 2006) assesses future requirements for different types of shopping and commercial leisure uses within Hull. A District and Local Centres Study, 2006, assesses the current hierarchy of shopping centres and how these might be developed as part of the HDF.
B.70 These studies include assessments of existing and future needs for:
non-food shopping typically undertaken within centres, either the City Centre or one of the District or Local Centres within the city;
food shopping either within centres or more typically within a large food superstore either in a centre or in an ‘out of centre’ location; and
non-food shopping within the various retail warehouses that exist around the city.
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B.71 Estimates of the amount of money people have to spend, now and in the future, have been made. This takes account of population change and shopping habits across different catchment areas. Future floorspace requirements can then be estimated based on existing and potential trading growth. Future leisure uses have also been assessed in a similar way to estimating shopping.
B.72 Key conclusions from these studies are that:
there is scope in the short and medium term to significantly improve non-food high street comparison shopping in the city centre and other centres. In terms of the city centre, St Stephens was estimated to have used up almost 50% of projected spending growth by 2011. The Quay West extension to Princes Quay is well placed to take further spending increases up to 2016. As such, there is no need to make provision for comparison goods shopping until after 2016 in the city centre. In other centres, new floorspace for non-food shopping will be needed after 2011 but better use of existing stores within centres could take up about half of this;
existing food superstores provide a good service to the majority of people in the city, including those linked to Hessle Road and Holderness Road District Shopping Centres. Until 2016, there is more food and grocery shopping floorspace than there is future spending power. This follows development of superstores at St Stephens and Mount Pleasant. This means that there is limited scope for further food shopping development until after 2016, although more local needs may be met through seeking provision within existing centres, including expansion at North Point;
there is more non-food retail warehousing than we need now and until after 2016. This means that until then, any further non-food retail warehousing development could affect the viability of existing shops, as people are likely to spend money on goods here, than in shops that could support existing shopping centres;
Hull has a good selection and growth potential for commercial leisure uses, such as for new health and fitness clubs, nightclubs, bars and restaurants and casino uses;
there is significant vacancy within shopping centres which could take up future demand, particularly suited to independent retailers; and
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further work is needed to determine the state of shopping centres including small local centres which provide ‘local top-up’ food and grocery shopping (or are important for those who are less mobile). Future investment and change in centres will need to be considered based on the conclusions of this work. The size and range of uses of each centre may be important factors.
B.73 We have considered future shopping needs to help steer retailers and future investment in centres. We have to ensure that these meet people’s needs. Options are limited as to how much provision can be made in the future. Schemes have already been identified that could meet the majority of these requirements. Too much development on top of these can undermine existing shops and centres, especially if provided in a less favourable location. This could lead to vacancies and poor range of services in certain parts of the city.
B.74 A suggested objective and options to address future shopping needs are:
Objective 11
Provide future retailing which meets people's needs, but does not undermine existing provision, especially if provided in a less favourable location.
Option 11
1. Where floorspace is required, support new shopping provision within, or which is readily accessible to, existing centres provided it is suitable in location, and is related in scale and nature to the role of that centre as well as related to the number of people they serve;
2. Limit any further major food shopping floorspace development until beyond 2016, as there is already adequate provision across the city, support provision in smaller centres when a localised deficiency can clearly be demonstrated; or
3. Limit any major non food shopping development until beyond 2016 to support new schemes in the city centre.
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B.75 A combination of these options is a suggested preferred option. The City Centre Area Action Plan, parts of which apply city wide, is at the forefront in updating elements of Local Plan shopping policy. This approach complements the options and policies being developed in this Development Plan Document.
B.76 Responsibilities for delivering the options and suggested preferred option include:
the City Council, in determining development proposals and in considering the future investment potential of centres, along side Hull Forward; and
retailers and other major providers, in focusing investment within existing centres.
B.77 We will check performance by using key indicators such as applications for development, retail turnover and health of centres.
Where will new shopping be provided?
B.78 Account must be taken of existing centres in the city when assessing future shopping needs. The city has a well established network of shopping centres ranging from the city centre, down to district centres, to smaller local centres. The viability of new or expanded centres will be influenced by the location, role and scale of existing district and local centres.
B.79 A network of shopping centres is defined within the current Hull Local Plan. This provides a good basis for understanding how future provision may be made. The City Centre is the prime focus for the city and has a wide catchment covering a large part of the East Riding of Yorkshire. Below the city centre 73 centres are identified across the city. These are defined by size and by the nature of the centres.
B.80 The three most prominent are called District Centres. They are Hessle Road, Holderness Road and North Point, Bransholme. These are expected to complement the City Centre by providing for convenience food and a range of comparison shopping facilities and other services. They are expected to cater for main convenience shopping and services, but offer a more limited range of comparison shopping when compared with the City Centre.
B.81 Below the District Centres, designated local shopping centres serve smaller localised catchment areas, providing coverage across the city. Hull has five designated ‘Large Local Centres’, all of which are located in the western half of the city. In addition, there are 21 designated ‘Important Local Centres’ and 44 other small local centres, which are spread throughout the city.
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B.82 The Hull District and Local Centres Study, 2006 has assessed the role and function of these centres as a basis for determining how they can provide for people’s needs in the future. The current shopping hierarchy provides a starting point.
B.83 Table B.7 sets out the conclusions of this work based on scoring the centres in terms of size and range of services provided. The column ‘hierarchy’ sets out the current designation in the Local Plan including District Centres (DC), Large Local Centres (LLC), Important Local Centres (ILC) and Small Centres (SC).
Table B.7 Hull shopping centre assessment
CENTRE SCORE HIERARCHY Holderness Road 243.50 DC Hessle Road 242.00 DC Newland Avenue 184.00 LLC Spring Bank 149.50 LLC North Point 145.50 DC Anlaby Road 144.50 LLC Chanterlands Avenue 113.00 LLC Princes Avenue 81.00 ILC Gipsyville 78.50 LLC Kingswood 72.50 ILC Stepney ( Beverley Road / Cave Street ) 70.00 ILC Beverley Road / Cottingham Road 57.50 ILC Spring Bank West / Calvert Lane 52.50 ILC Sutton Village 51.00 ILC Barham Road 44.50 ILC Endike Lane 44.00 ILC Marfleet Lane / Preston Road 43.50 ILC Beverley Road / Sutton Road 42.00 ILC Beverley Road/Washington Street 39.00 SC
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CENTRE SCORE HIERARCHY Savoy Road 36.00 ILC Cottingham Road / Hall Road 35.50 ILC Southcoates Lane 34.50 ILC Annandale Road 34.00 ILC Hawthorn Avenue 31.50 SC Holderness Road/Morrisons 27.50 SC Willerby Road 25.00 ILC Grandale 25.00 ILC Grampian Way 25.00 ILC Anlaby Road / Anlaby Park 24.50 SC Orchard Park 24.00 ILC Tweendykes 23.00 SC Wold Road 20.50 SC Shannon Road 20.00 ILC Greenwood Avenue West 19.50 SC Holderness Road/Woodford 19.00 SC Anlaby Road / Coltman Street 17.50 SC Goodwin Parade, Walker Street 17.50 SC Marfleet Lane - extra 17.00 SC Boothferry Road/Belgrave Road 16.00 SC Greenwood Avenue 16.00 SC Albert Avenue / Spring Bank West 16.00 SC Hotham Road South 16.00 SC Bethune Avenue 16.00 ILC Bodmin Road 13.50 ILC Anlaby Road / Calvert Lane 13.50 SC
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CENTRE SCORE HIERARCHY Bishop Alcock Road 13.50 SC Inglemire Lane/Olstead Avenue 13.50 SC Portobello Street 12.50 SC Preston Road 12.50 SC St Georges Road 12.00 SC Boothferry Road / North Road 12.00 SC Bricknell Avenue 12.00 SC Wawne Road 12.00 SC Inglemire Lane/Hall Road 11.50 SC Askew Avenue 11.00 SC Spring Bank West / Luton Street 10.50 SC Beverley Road/Queens Road 10.50 SC Victoria Dock 10.00 ILC The Quadrant 9.50 SC County Road South 9.00 SC Anlaby Road / East Ella Drive 8.50 SC Priory Road 8.00 SC Sibelius Road 8.00 SC Southcoates Lane / Kedrum Road 8.00 SC Caroline Street 7.50 SC National Avenue 7.00 SC Amethyst Road 6.00 SC Chamberlain Road 6.00 SC Hartoft Road 4.50 SC Shannon Road North 4.00 SC Barham Road/Staveley Road 4.00 SC
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CENTRE SCORE HIERARCHY Dibsdane 3.50 SC Dalsetter Rise 2.50 SC
B.84 Key conclusions of this assessment include:
the highest scores are achieved for Hessle Road and Holderness Road District Centres. This reflects their large size and their important role in providing a wide range of shops and services. They both also have a large food superstore attached to the centre;
North Point District Centre scores lower than some of the larger local centres. However, its role is important given the prominence of its position at the heart of the Bransholme and Sutton estates, and being the largest centre in these areas; and
the larger local centres, while achieving a higher rating than North Point, are located in an area of the city that is well served by a network of larger centres and therefore have less of a focus, especially given the proximity of the Hessle Road District Centre.
B.85 The analysis suggests that overall the Local Plan classification of centres remains largely relevant and could be carried forward in the HDF Core Strategy. One or two centres may justifiably be given greater recognition while others may no longer have a significant role.
B.86 In addition to these shopping centres, the One Hull Spatial Strategy has set out the need for nine service centres or hubs that will provide a focus for regeneration activity. These hubs will be the focus for neighbourhood services in the future. They largely relate to existing shopping centres.
People’s Shopping Patterns
B.87 It is evident that the city is well served by major food superstores. The household survey undertaken as part of the District and Local Centres Study, 2006 also highlighted that these shops are the major destination for the majority of people’s food shopping.
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B.88 The majority of neighbourhoods in the city have easy access to a store of this type. Stores are subject to people’s preferences and people do not always choose to use a store purely because of its proximity. Stores compete heavily for custom and so influence actual shopping patterns.
B.89 Some of the stores are located in, or on the edge of shopping centres. Some are considered to be ‘out of centre’. Given their important role it might be considered that 'out of centre' stores should be given greater recognition in the role they play in supporting neighbourhoods.
B.90 A suggested objective in terms of the future location of shopping is:
Objective 12
Provide a network of shopping centres across the city able to meet the future needs of the community.
B.91 Options are limited but a number are put forward to address this objective, including:
Option 12
1. Define centres in a hierarchy based on their role and function using the assessment set out in Table B.7 including maintaining Hessle Road, Holderness Road and North Point as District Centres;
2. Promote ‘service hubs’, as shown on the Spatial Options Map (back of this document), to provide a focus for future investment for the provision of other local services;
3. Reduce the number of smaller centres in the hierarchy as they are unlikely to be viable in the longer term; or
4. Promote mixed use development including non-retail uses, in smaller centres to prevent blight of empty units but to retain important services.
B.92 A suggested preferred option is to combine these options.
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B.93 Responsibilities for delivering the options and suggested preferred option include:
the City Council, in determining development proposals and in considering the future investment potential of centres, alongside Hull Forward; and
retailers and other major providers, in focusing investment within existing centres.
B.94 We will check performance by using key indicators such as applications for development, retail turnover and health of centres.
Tourism B.95 There are many types of tourist and leisure activities that lend themselves to city locations. They can bring significant regeneration and economic benefits. They are of particular importance to the future long term growth of the city centre.
B.96 Because demand for such uses is variable it is hard to plan for them. However, Government planning policy makes clear that very large scale uses or those serving large catchment areas, are best located within the city centre or where they can be accessed by walking, cycling and public transport. These facilities include:
hotels (including for business and tourists), guest house and bed & breakfast accommodation;
cinemas, theatres and concert and bingo clubs;
museums, galleries and conference facilities;
restaurants, bars, pubs, casinos and nightclubs; and
indoor and ten-pin bowling and health & fitness centres.
B.97 The Council has already assessed need for leisure uses in the City Centre Area Action Plan and Visit Hull and East Yorkshire (a company aimed at promoting tourism in the local area) have assessed the need for hotels. A range of sites, specifically for high end and larger than average facilities, within defined Strategic Development Areas, is put forward in the City Centre Area Action Plan.
B.98 Spreading large uses that serve large catchments throughout the city or beyond it, can undermine opportunities that are much needed in sustaining the city centre. The City Centre Area Action Plan provides further details about the focus for leisure development and sequential approach.
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B.99 A suggested objective for assisting the growth of leisure and tourism business is to:
Objective 13
Seek to ensure an adequate range and access to tourism and business related leisure uses, with the main focus being on the city centre.
Option 13
Options to address this objective include:
1. support for major tourism and leisure related business within the city centre and in following a sequential approach or is readily accessible to frequent public transport provision;
2. agree to land allocations or planning permissions in places outside the city centre for major uses only if these bring demonstrable and major regeneration benefits so long as this does not undermine the strategy for the city centre; or
3. safeguard and improve existing tourism related business.
B.100 A preferred option is suggested as a combination of these options.
B.101 We will measure performance of a preferred option by monitoring tourism and leisure related development including the range of hotel accommodation.
B.102 Key people or organisations responsible for delivery of these options (or some variation of them) will mainly include developers in association with leisure service facility providers. The Council, as the Local Planning Authority, has a role in reserving land to meet future tourism and leisure needs through the plan making process. This can help to attract and retain investment in the city and wider area. We are working with Visit Hull and East Yorkshire to determine the best approach.
B.103 Hull Forward will also have a role in enabling major tourism or leisure related investment in the city within the defined City Centre Area Action Plan Strategic Development Areas, which is already at an advanced stage of preparation.
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Healthy living B.104 People in Hull generally smoke more, drink more and have a worse diet than in other areas of the UK. Health in Hull is worse than in other parts of the region. These poorer health outcomes are often due to lifestyle choices. The challenge therefore is to encourage and support people to stop smoking, drink less, eat more healthily and take more exercise.
B.105 These challenge are reflected in the One Hull Community Strategy within its 'Quality of Life' core priority. One of its key objectives is to increase life expectancy by reducing avoidable ill health and early death. To achieve this aim the following targets have been identified:
reduce smoking by creating more smoke-free public places and offering 'smoking cessation' programmes in work places;
reduce obesity, by promoting active lifestyles and healthy eating programmes; and
reduce alcohol and drug misuse.
B.106 The Government has placed more emphasis on improving public health and lifestyle choices in the strategic document 'Choosing Health : making health choices easier' . Hull Primary Care Trust Public Health Directorate (PHD) has produced a business plan which aims to bring the above priorities and local public health targets together in a single framework which can be delivered and monitored. Relevant health and risk factors in Hull (identified in the PHD), include:
Life expectancy and premature mortality - Men in Hull still live on average 2.3 years less than they do in the rest of England and women 1.9 years less. For 2002-04 life expectancy at birth for Hull men was 73.7 years and for women79 years. As there are definite differences between these averages across the city on a ward basis there is a strong suggestion this is due to differing deprivation levels. Of deaths under 75 years, 12% where due to lung cancer, 24% due to other cancers , 20% to coronary heart disease, 12% to other circulatory diseases and 10% due to other respiratory conditions. The under - 75 standardised mortality ratio (SMR) for Hull is 1.21 which means that the mortality rate, after adjusting for differences in the age and gender structure is more than 20% higher in Hull than elsewhere in England.
Early deaths - The main causes of premature death (2001-04) for Hull people aged 40-74 are from cancer, heart disease or breathing problems. Smoking plays a significant part in this. If a person smokes they will live on average 7 years less
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than a non smoker. A smoker is more likely to suffer from cancer, is 2 to 3 times more likely to have a heart attack and to suffer a stroke, blood clot or Type 2 diabetes. Smoking levels in some areas of Hull are nearly twice those of the rest of England. A national study in 2004 estimates that smoking prevalence rates in east and west Hull PCT areas were 40% and 38% respectively - among the highest in England. High alcohol consumption leads to heart disease, liver disease and many forms of cancer. Nationally this equates to between 15,000 and 22,000 deaths a year associated with alcohol misuse. It is estimated that there over 37,000 'harmful drinkers' (those drinking above safe drinking levels) within the city and 6,000 people with an alcohol dependency. Excessive drinking is worst amongst men under 34 (24% drink too much) with 14% of women aged 16-24 drinking too much.
Tackling obesity - Hull continues to have a reputation as a city where obesity rates are above average. However, the prevalence of obesity in adults is estimated to be 19% and 23% for men and women respectively compared with 24% and 26% for England as a whole, meaning the situation is no worse than in many other cities in the UK. Nevertheless there is concern at the continuing rise in levels of obesity, here and nationally, especially amongst children. Overall in Hull in 2005/06 27% of boys and 24% of girls aged 5 were classified as overweight or obese (6% and 5% respectively considered obese) and one third (34%) of 10/11 year olds were considered overweight (of these 11% of boys and 9% of girls had a Body Mass Index classified as obese). A high percentage of Hull residents do not eat the recommended 5 portions of fruit and vegetables a day or undertake sufficient exercise.
B.107 The planning system has a role in addressing these issues. New development and the state of living conditions, pleasant environment, access to facilities and shopping, are all related to people's well-being. We need to ensure that new facilities are planned in a way which supports people's well-being, including:
having access to open space for walking and other activities;
good access to local recreation or sports facilities;
ensuring shopping and other services are locally accessible so reducing the need to travel by car; and
limiting access to hot food take aways, such as near secondary schools.
B.108 Health care facilities are a key element to securing better health in the city. Preventative care is crucial to addressing some of the issues raised above. The following section deals with these matters in more detail.
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B.109 A suggested objective in tackling healthy living is:
Objective 14
Improve overall well-being in the city through raising awareness about healthy lifestyle choices to be supported by appropriate development and use of land.
Option 14
The options to address this objective include:
1. safeguard and improve access to open spaces, sporting and recreation facilities;
2. support the provision of additional accessible open space and any outdoor or indoor sport facility following an assessment of what is needed;
3. limit the number of planning permissions given for fast food takeaways, especially close to schools (within 400 metres);
4. limit the number of planning permissions given for public houses and bars in particular locations;
5. plan developments in such a way as to support and encourage walking and cycling in preference to the use of the car;
6. support and encourage increased physical activity and sports participation by Hull residents; and
7. assist in retaining / attracting families into the city to maintain sustainable communities.
B.110 A suggested preferred option is a combination all these options.
B.111 We will measure performance of a preferred option by monitoring the development of health related facilities as well as general indicators of health.
B.112 Key people or organisations responsible for delivering a preferred option (or some variation of them) will include:
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the Council, in protecting and reserving land for public open spaces and recreation facilities, while balancing potentially conflicting pressures from other OneHull 'priorities', such as the need to encourage more employment to the city and the need to build more houses;
land owners of open space, who have a shared responsibility to ensure land is retained or improved for future sports/recreational activity;
developers, by ensuring that development takes account of the need to encourage walking or cycling; and
sports providers, by ensuring that the right sort of provision is available to meet future needs.
Health care provision B.113 Health services within the city are provided by a number of agencies or 'trusts'. These are managed by a Strategic Health Authority which covers Hull. These trusts run different services including:
Acute Trusts (Hull and East Yorkshire Hospitals NHS Trust) - who manage hospitals and Accident and Emergency Services;
Ambulance Trusts (The Yorkshire Ambulance Service) - who manage ambulance and other health care transport services;
Mental Health Trusts (Humber Mental Health Teaching NHS Trust) - who manage social care provision; and
Primary Care Trusts (Hull Teaching Primary Care Trust) - who manage local health service provision.
B.114 Hull and East Yorkshire Hospitals NHS Trust provides acute services in Hull, Cottingham and specialist care in the wider regional area and is a major partner in the Hull York Medical School. Based on 3 sites – Hull Royal Infirmary, Castle Hill Hospital and Princess Royal Hospital, it is one of the largest trusts in England serving a local population of around 550,000 with over 7,000 employees and an annual budget of approximately £300 million.
B.115 The Humber Mental Health NHS Teaching Trust ( formerly Hull and East Riding Community Health NHS Trust ) provides health and social care services for people affected by mental health problems, learning difficulties and addictions in Hull and
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East Yorkshire. It employs around 2,000 members of staff with an annual income of around £70 million and offers services in a number of settings, such as, patients own home, health centres, day hospitals, local authority premises and in-patient units.
B.116 The Yorkshire Ambulance Service was formed on 1st July 2006 when the South Yorkshire Ambulance Service, Tees East and North Yorkshire Ambulance Service and West Yorkshire Metropolitan Ambulance Service merged together. The Trust provides emergency access to health care services.
B.117 Hull Teaching PCT was formed on October 1st 2006 when West Hull PCT and Eastern Hull PCT merged. It serves the primary health needs of approximately 290,000 people living in Hull, employs around 1,000 members of staff and has an annual budget of £373 million. The PCT has responsibility for ‘first port of call’ health care services, such as, General Practitioners (GPs), opticians, dentists and pharmacy services. It has to ensure that these services meet the needs and expectations of the local population they serve. It is also responsible for the purchase of other health care services, not provided by the trust itself, such as hospitals, continuing care and mental health services.
B.118 The PCT operates 27 health centres and surgeries within the city and holds 'in-house' clinics at a further 6 surgeries. Hull has at present a total of 55 GP practices with 151 individual doctors. Of these practices, 8 have closed lists equating to 59 GPs per 100,000 people. This compares to a general assessment of 54 GPs per 100,000 people in England's most deprived areas and 66 in the least deprived (Healthcare Commission, 2007). Hull is marginally better off in comparison with the most deprived places in England.
B.119 The LIFT (Local Improvement Finance Trust) Programme is part of a NHS building programme which aims to provide new medical centres that offer modern accommodation for many of the city's GPs in convenient community settings. The LIFT programme in Hull is being developed by Hull Citycare which is a Local Joint Venture Company. This is a partnership between Hull Teaching PCT (20% share holding), Partnership for Health (20% share holding) and the builders Sewell (60% share holding) responsible for property development, design, construction, maintenance and estate management of these new facilities.
B.120 Hull currently has 8 LIFT projects, most of which are completed or under construction, but 2 are in the early planning stages. These include:
Newington Primary Care Centre - located on the old Plane Street Methodist Church site which opened in January 2006 following a £1.9 million investment;
Marfleet Primary Care Centre - opened in 2006 following a £2.3 million investment;
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Alexandra Health Care Centre - opened in spring 2007;
Park Health Care Centre - situated on Holderness Road and opened summer 2007;
Longhill Primary Care Centre - is under construction (commenced July 06) and is being developed as a designated 'Primary Care plus centre' incorporating a new library, an integrated pharmaceutical service and provision for a dentistry;
Calvert Lane Health Care Centre - was opened in 2008 and is the first LIFT scheme to house both health and city council facilities;
Orchard Park Regeneration Scheme - still in the planning stage, Citycare are working with Hull City Council to provide a 'joined-up' scheme that will develop a service 'hub' for the surrounding area. It will combine a primary healthcare facility with a customer care centre, area committee office and housing office. It is also intended to include a community centre and a Citizen's Advice Bureau within the scheme; and
Westbourne Avenue NHS Centre - West Hull PCT has acquired this former private hospital premises.
B.121 The Council continues to support these schemes as a way of improving overall well- being and health of people in the city. The health care development schemes referred to above accord with the current Local Plan policies which look to secure local facilities in accessible locations.
B.122 The PCT and other providers are working with the Council to secure further health care provision, including the development of three 'super hubs', one each within north, west and east Hull. These involve a wide range of health services covering acute, primary and community health care with diagnostic testing and out-patient services.
B.123 These more specialist acute care facilities should at least be accessible by public transport and be related to existing community service provision. Each of the three identified District Shopping Centres could provide suitable locations for such a use although there are challenges in terms of site assembly.
B.124 There may be further opportunities in bringing together facilities with other providers, such as the Council. Bringing uses together as local 'one stop shop' facilities can bring benefits for customers and service providers.
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B.125 The following objective is suggested to support health care needs:
Objective 15
Promote and improve access to health care facilities to ensure Hull residents enjoy a long and healthy life.
Option 15
The options to address this objective include:
1. support local health care facility provision within, or which are readily accessible to neighbourhoods;
2. support major health care facilities by safeguarding sites for future 'super- hub' health development, particularly if accessible to public transport or within existing District Shopping Centres;
3. aid the grouping of health care facilities with other community focused needs such as Council services, shops, schools and libraries; or
4. target health facilities in disadvantaged communities.
B.126 A suggested preferred option is to combine these options.
B.127 We will measure performance of a preferred option by monitoring the development of health care facilities as well as general indicators of health.
B.128 Key people or organisations responsible for the delivery of these options (or some variation of them) will include The Yorkshire and Humber Strategic Health Authority, Hull and East Yorkshire Hospitals NHS Trust, the Humber Mental Health NHS Teaching Trust and Hull Teaching PCT. The Council, as the Local Planning Authority has a role to play in reserving land for future health care facilities in sustainable neighbourhoods through the plan making process while taking into account the needs of other OneHull 'priorities' such as employment, need to protect open spaces and need for more houses.
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Quality of place B.129 Local authorities have a duty to promote and improve the environmental well-being of their area. The Government places considerable importance, as explained in Planning Policy Statements 1 (Delivering Sustainable Development) and 12 (Local Development Frameworks), on place making and shaping, through the preparation of development plans. It has particular responsibilities to pursue and promote sustainable development, by addressing the causes and potential impacts of climate change and the promotion of high quality inclusive design.
B.130 The Community Strategy aims for “a healthy, safe, attractive and rich environment” for present and future generations, reducing pollution, maximising recycling, increasing energy efficiency, increasing tree planting, protecting historic buildings, biodiversity and open spaces and reducing crime and the fear of crime. Consultation on the Community Strategy revealed that at the local level, communities place high priority on the condition of the environment where they live.
B.131 High quality design can assist in delivering sustainable development. It can ‘lift’ and improve the quality of the existing environment. Done correctly, it can create a sense of place and encourage civic pride. High quality design is therefore important but should be particularly apparent in places which are publicly visible or where major re-development opportunities arise. The city centre, environmentally sensitive areas and landmark locations are such places.
B.132 The environment in Hull is characterised by the following:
only a small percentage of the city is covered by woodland;
the city has one Scheduled Ancient Monument;
there are around 120 Sites of Nature Conservation Importance;
the waterfront of the city is adjacent to an internationally designated area of wildlife importance; and
the city has 26 Conservation Areas covering 8% of the city and over 450 Listed buildings.
B.133 The current Local Plan includes policies which provide a set of key design principles for new development to follow. These could provide a useful starting point for future new policies. These are supplemented by design documents which also need reviewing.
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B.134 Design and Access Statements are now required as part of planning submissions, but there is merit in considering a design framework for the whole of the city, based on local character assessments. These would assess design principles and how valuable places are in design terms. A number of local character assessments would be needed to inform a more detailed design policy framework.
B.135 Community safety is important. Planning can contribute to crime reduction and community safety and reduce opportunities for anti-social behaviour, through good design and appropriate landscaping. However, it is important to avoid creating “sterile”, “fortress” or “institutionalised” environments.
B.136 Areas where environmental quality is poor also need to be tackled. Programmes of action could be put together to target areas and identify the contribution new developments could make towards resolving these problems. Currently, the West and East Hull and City Centre Area Action Plans, are taking this approach. Other areas may be considered as needing action but they will be dependent on adequate funds being available. Area Committees could have an important role in managing this.
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B.137 A suggested objective in improving overall quality of place in Hull is:
Objective 16
Improve the design quality of all development as well as improving the existing environment and conserving the historic character of the city.
Option 16
The options to address this objective include:
1. develop a city wide design policy framework following local character assessment appraisals;
2. review existing design guidance in producing new Supplementary Planning Documents in support of a design policy framework;
3. retain current design policies set out in the Local Plan;
4. let each proposal be determined on its design merits; or
5. identify priority areas, where action should be concentrated to remove environmental eyesores.
B.138 A suggested preferred option is to combine these options subject to further consideration of capacity within the Council to lead on this.
B.139 We will measure performance of a preferred option by monitoring the number of submitted design statements.
Urban Greenspace B.140 Natural green and open spaces are important to the quality of places and to people’s overall well-being. They provide relief from the built form, provide a venue for exercise and exploration of nature and are important for improving air quality and urban cooling. The Government make clear, in Planning Policy Guidance 17 (Planning for open space,
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sport and recreation) that they should be assessed and be protected from development, if valued. These requirements should also be balanced against the needs for development because once developed open spaces can not readily be replaced.
B.141 Hull has historically lacked green spaces. Predominantly built up, the city's parks and amenity spaces are an important source of biodiversity in Hull. The city has around 120 Sites of Nature Conservation Importance, and in and around the city there are six international Ramsar sites and ten Sites of Special Scientific Interest (SSSI). Since 2004, the whole of the River Humber frontage has become a SSSI. There is also a large green network based mainly around the rivers, drains and railway lines across the city, providing migratory routes for wildlife.
B.142 The city’s biodiversity includes trees, woodlands, hedges, ponds and gardens. While many of these features do not merit individual protection, they are still a valuable part of the environment and character of the city. The Hull Biodiversity Action Plan has identified species and habitats of importance which can be found in Hull. The HDF will need to decide where protection is justified, where development can be allowed, and how the impact on biodiversity can be minimised or compensated.
B.143 The Council is carrying out a city-wide open space assessment (due mid-2008) to help decide which urban green spaces are worth keeping. Until this work is finished it is difficult to make any firm commitment about the future of green space. However, it is likely that the majority of sites will continue to be protected, unless otherwise justified. We also know that the Strategic Flood Risk Assessment points toward protecting green spaces for flood storage.
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B.144 A suggested objective in relation to urban green space is:
Objective 17
Raise overall quality of place in Hull by protecting valued urban green spaces and the green network including their biodiversity value.
Option 17
The options to address this objective include:
1. protect valued urban green spaces from development, once identified;
2. increase the quantity and quality of green space by requiring new development to provide it;
3. review the quantity and quality of green space to identify where it is not needed and could be used for alternative use, such as for housing;
4. consider how best to retain wildlife features and secure their management as part of development proposals; or
5. reinforce and extend green networks and corridors, improving them as routes for cyclists and pedestrians.
B.145 A suggested preferred option is to progress a combination of all these options.
B.146 We will measure the performance of the chosen option(s) by monitoring the quantity, quality and accessibility of green space in the city compared with locally-set standards.
Heritage B.147 The historic built environment includes listed buildings and conservation areas. The city has 26 Conservation Areas covering around 8% of the city and over 450 Listed Buildings. These enjoy recognition and protection through national legislation. PPG15 - Planning and the Historic Environment outlines what is or is not appropriate, in terms of their use or adaptation.
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B.148 The city has other important historic assets which do not have the benefit of being protected by law but they do have an important role as part of the overall character of an area. Such assets can also be important to tourism and the wider economy.
B.149 The city also has significant areas of archaeological interest. These include buried deposits and some standing remains which are protected as Scheduled Ancient Monuments. They should not be needlessly destroyed or adversely affected. These are also protected by law. PPG16 - Archaeology sets out a basis for advising on proposals affecting remains or their setting.
B.150 A suggested objective in relation to the historic built environment is:
Objective 18
Protect the built historic heritage of the city in a way which adds to its character and appearance.
Option 18
Available options to address this objective are limited because of the requirements imposed by law, but suggestions include:
1. continue with the Local Plan policies and protect and enhance listed buildings and conservation areas;
2. preserve important archaeological monuments and remains; and
3. protect locally important buildings which do not qualify for listed building status.
B.151 A preferred option will assess planning proposals for new developments in Conservation Areas to check these add value to the character and appearance of the area. In the case of Listed Building, development should not harm its special architectural or historic interest.
B.152 Key players involved in protecting and enhancing heritage in the city include the Council, English Heritage, Humber Archaeology Partnership and Amenity organisations. These organisations have particular responsibilities for aspects of the City's heritage.
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Sport and active recreation provision B.153 Sports and active recreation areas or facilities provide an important resource for local people. They are essential to people's health and can contribute to safer and more attractive neighbourhoods. These facilities include public sports centres and swimming pools, voluntary sports clubs and private sports clubs. They also include parks, playing pitches and informal open space.
B.154 Certain open space is increasingly under pressure from development as landowners seek to dispose of unwanted sports grounds, for example. Without careful management the city's supply of facilities will diminish. As a result there is likely to be greater pressure on other existing facilities. The overall quality of life for city residents and visitors could fall.
B.155 PPS17 - Sport and Recreation, recognises the importance of facilities for the general health and well-being of individuals. It says that local planning authorities should take account of the community’s need for recreational space, having regard to current and future levels of provision. Any gaps in provision can be sought along with protecting what exists.
B.156 The City Council is currently preparing a Sports and Recreation Strategy which considers facilities in the widest sense with an overall aim of increasing city resident participation in active sport, by 1% year on year. Background evidence to this work indicates that around 60% of people in Hull take no regular sport or active recreation. This Strategy says there is a shortage of sports hall and swimming provision in East Hull. There is also a lack of adventurous sport and recreation activities.
B.157 Measures suggested in the Sports and Recreation Strategy to tackle these issues include improving the range and quality of facilities. New sport and recreation facilities are being planned as part of secondary school re-modelling as proposed by Building Schools for the Future programme. This includes both local 'neighbourhood' facilities and larger multi-sports facilities.
B.158 Professional sports clubs in the city are considering new proposals either as part of dual access to the re-modelled secondary schools or as free standing facilities. Other proposals being put forward include improvements to existing facilities such as changing rooms or pitch redevelopment but this requires funding support from other partners. Hull Leisure Services are also considering 3 potential sports 'super-hubs' in West, East and North Hull.
B.159 An audit of existing sports and recreation facilities is underway as well as consideration of future potential. This will help define which sites or facilities are needed or could be improved. Gaps in provision can also be assessed. This study will inform potential
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approaches for new facilities or if land could be used for other purposes. Ideally, major sporting facilities serving wider catchments or needs should be located within central locations which are accessible by public transport.
B.160 A suggested objective to address sports and recreation issues is:
Objective 19
Secure appropriate provision of sports and recreation facilities.
Option 19
Possible options to address this objective includes:
1. determine ‘gaps’ in provision and how new facilities can best be used, for example through the dual use of schools;
2. set out local standards for sports and recreation provision across the city based on community needs;
3. locate facilities serving major events in central locations where they are accessible by public transport;
4. make the city’s facilities more accessible, for example, by adding safe cycle routes;
5. retain sports pitches and recreation areas by protecting them from development so as not to reduce overall provision, because once lost they can never be replaced.
B.161 Sports and recreation facilities will be more fully considered once the study is completed. We will monitor proposals for new and improvements to existing sporting facilities.
B.162 Key players in the city in relation to sports facilities provision include the facility providers such as the City Council and other private clubs, schools, Sports Clubs and National Governing Bodies.
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B.163 In terms of future provision the Council has a role in assessing current and future needs in conjunction with key providers as well as protecting provision if under threat. It also has a service delivery role in terms of parks and leisure facilities. The Sports and Recreation Strategy is being devised to help bring providers together to enable better management of facilities and service costs.
B.164 The Building Schools for the Future programme offers significant opportunities to address gaps in sports provision through secondary school sites re-modelling. Careful consideration is needed about the type of sports use and ability to keep these services open beyond the school day, including costs and management.
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C Jobs and prosperity Scale and distribution of employment land C.1 As set out in Planning Policy Statement 1 'Delivering Sustainable Development', the Government is committed to promoting a strong, stable, productive and competitive economy and sees the planning system as having an important role to play in this. Draft PPS4 'Planning for Sustainable Economic Development', recently released for comments, also refers to how planning affects productivity and employment – the two drivers of economic growth – and influences wider economic objectives such as regeneration and the provision of housing which contribute to overall quality of life. Specific objectives for delivering sustainable economic development includes bringing forward sufficient land of a suitable quality and in the right locations, to meet expected needs for industrial and commercial development.
C.2 The Government produced Employment Land Review Guidance Note in 2004, for Councils to identify an up-to-date and balanced portfolio of employment sites. Working to this guidance and in partnership with others, the City Council has recently completed as study which has informed the options set out in this section.
C.3 In terms of looking at future land needs, the Council also has to consider the Regional Spatial Strategy (RSS). Broad land requirements are outlined for Hull in RSS but this also suggests that a local review might provide a better basis for local planning. The City Council has therefore not taken the RSS figures as its guide to future employment land requirements. Future projections for land requirements need to be seen in the context of what is happening in Hull in terms of its potential economic future. It is acknowledged that the city is undergoing transformation.
C.4 From a global and national perspective, Hull currently has more than average manufacturing based employment and less than average employment in the service and knowledge based sectors. It is acknowledged that Hull’s natural economic cycle is behind that of the UK as a whole and manufacturing employment in Hull is currently stable. However, Hull’s manufacturing base is more focused on traditional heavy industry processes and less so on business like offices and research or manufacturing which would have greater economic value, in terms of providing skilled jobs.
C.5 There is concern that the increasing global influence on local economies makes production based manufacturing vulnerable to relocation and consolidation, compared to other sectors. The UK Government is keen for the country to maintain a competitive edge in the global economy, which means moving towards businesses of great economic value. Tackling a ‘weak economic base’ is important as part of an integrated approach to regeneration and renewal. It is anticipated that the growth approach will
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drive up wages (and hence household incomes) improve skill levels, attract inward investment and generate new business, all of which will be of benefit to the wider regeneration of the city.
C.6 As a general policy direction, the Council and its partners have adopted a ‘going for growth’ scenario. The Community Strategy seeks to create 20,000 new jobs and 1,500 new businesses by 2020. While this may be tempered by more accurate projections it still sets a direction of travel. There already is an important strategy in place, to develop a successful city centre economy, developed through the City Centre Masterplan and Area Action Plan. The Hull and Humber Ports City Regional Development Programme (CRDP) reflects the future scale of “transformational change” and sets an aspirational target of the numbers of jobs that can be achieved for the city and the types of industries these will be in. This is based on the likely actions required to achieve transformation in the city. The CRDP forms the basis of establishing future requirements for employment land in the city.
Projected future employment land demand
C.7 Guidance from Government suggests a range of different methods for estimating future levels of employment land. The preferred method is based on employment land forecasts, with Full Time Equivalent jobs in different sectors matched against relevant use classes (see appendix 2 for further details). These are converted into land requirements by applying assumptions around employee/floorspace densities, plot ratios, vacancy rates, assumptions about losses to other uses and an optimal margin of choice or ‘churn’ to provide sufficient choice in the market.
C.8 The Employment Land Review has followed this methodology. Important assumptions have been made to inform the calculation of estimated employment land demand, particularly related to the wider policy choices for the city’s economic development and change. Four main issues have influenced the assumptions:
the strategy to develop a successful city centre economy based on growth sectors of financial and business services, creative industries as well as through public services and the required step change to achieve this;
the significant part of low-job-density, ‘land hungry’ port-related industrial and production uses which exist and which can skew the overall land requirements;
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much of Hull’s existing supply of land is constrained and impaired in terms of quality, access, flood risk and location, pointing to a possible need for releasing some land to other uses, but also to build in a margin of choice to allow targeting and phasing of development; and
the manufacturing and production sector in Hull will continue to undergo significant restructuring in the face of competitive pressures, and from cost pressures such as rising energy prices. A challenge will be to facilitate a transition to a more modern, productive, competitive, knowledge based manufacturing and production sectors. This will present particular challenges in terms of the land and property requirements.
C.9 It is desirable to allocate a flexible supply of land as some land, particularly where constrained, may not come forward for development in the short to medium term. Determining a robust figure for margin of choice is not an exact science and will always be subject to a degree of subjectivity. Given the situation in Hull and the issues relating to restructuring and level of constraint, a high margin of choice has been built in to the model.
C.10 The Employment Land Review has projected a requirement in the city of between 113 and 128 ha of employment land up to 2026.
The supply of land to deliver growth and develop economic clusters
C.11 The growth and expansion of existing businesses as well as developing new and emerging clusters/sectors will require a supply of good quality employment land. This land needs to be in the right locations and of sufficient quantity to bring about development and benefits derived from supply chains and co-location.
C.12 Particularly relevant is the need to provide a sufficient supply of land to enable ‘everyday’ employment uses to function, grow and expand and balance this with a need to foster growth and development in specific clusters. Ideally, locations that are optimal for specific clusters, should be ‘safeguarded’ for these uses.
C.13 Land supply in Hull has been assessed over a 9 year period. In pure quantitative terms there is a total of approximately 190 ha of employment land available in the city. Against the projected requirement, it appears on the face of it, that there is an adequate supply.
C.14 However, assessment of the qualitative picture highlights the difficulties of using this land as an appropriate portfolio for delivering the key economic objectives for the city. Government guidance requires a re-focus on the quality and deliverability of land identified for employment uses. Particular issues for Hull, are:
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almost three quarters of land supply is on previously developed land. This is a result of the tight administrative boundary of the city. There are limited opportunities to identify new land for development and the supply is very much dependant on the recycling of existing land and buildings;
over a third of total supply is at high risk of flooding and a further 48% is at medium risk of flooding. While not insurmountable, this will impact on the appropriateness of the proposed use in certain locations and the cost of delivering development at minimal risk;
19% of the total land supply is considered to be significantly constrained. These constraints include substantial contamination and the ability to access the trunk road network;
although a large part of identified land is already committed through the grant of planning permission – two thirds of this, on 10 sites, only has outline permission. A range of smaller sites – the remaining third have full consent or have progressed through to reserved matters stage, although some of these sites may be subdivisions of much larger overall opportunities, for example Priory Park; and
the large amount of land remaining with outline permission is perhaps reflected in the fact that an increasing number of consents remain in the pipeline for development and the amount of land being developed has decreased over recent years. The reasons for this trend may be complex, but might be a result of, for example, rising building costs making it no longer viable to implement a consent. Alternatively the landowner may be ‘banking’ the consent in the hope of higher land values. In addition, highway capacity and flood risk constraints may be impacting on actual delivery of development.
C.15 The total portfolio of identified employment land in Hull has been assessed in terms of its availability. In line with the idea of phasing outlined in consideration of future growth scenarios for the city, availability has been split into three broad time periods related to the lifespan of the Hull Development Framework:
Short term – 2008 to 2014;
Medium term – 2014 to 2020; and
Long term - 2020 to 2026.
C.16 The assessment has made assumptions about what land could come forward. Where significant constraints exist this could restrict certain sites coming forward and would reduce the overall supply. Constrained sites are placed in later phases to reflect the
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longer time scales involved in bringing sites forward. Some sites may ultimately be de-allocated or considered for alternative uses when considered in detail through the Site Allocations DPD.
C.17 The following figure C.1 highlights the amount of land that could come forward in each of these time periods based on deliverability assumptions. Sites in later phases reflect the longer time it will take to bring certain sites forward and highlights that action is needed to bring more land forward to meet projected requirements. Some land located in the Heartlands Area does not necessarily represent development sites, some in temporary use, but may form part of a wider proposal in the future and therefore could potentially be retained for employment use.
Figure C.1 Availability of Employment Land in Hull
Availability of Employment Land in Hull Retain Potentially
2020 - 2026
Key Sites All Sites
2014 - 2020
2008 - 2014 Phase 1 Phase 2 Phase 3
0 1020304050607080 Amount (Hectares)
C.18 The graph also shows the amount of land likely to come forward as ‘key sites’. These are seen as single or groups of sites that could provide for larger business opportunities, particularly relating to clusters but also to support necessary infrastructure.
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Figure C.2 Categorisation of Employment Land in Hull
Categorisation of employment land (ha)
Expansion
Development Plot or Redevelopment Opportunity
Key Site
0 20 40 60 80 100 120 140 160 Amount of land (ha)
C.19 Figure C.2 above shows the amount of land considered as being available, what could come forward as key sites, development plots and expansion sites. Development plots relate to smaller opportunities that can be equally important in supporting existing industries and the day to day churn of Small and Medium Sized Enterprises (SMEs). Expansion land relates to expansion plans of existing firms so is limited in its role to support a wider remit and may be held for the longer term.
Distribution of Land
C.20 The distribution of available land is important since this determines the kinds of opportunities that it might support, for example in terms of specific clusters where location is important. Also market demand can play an important part in the delivery of the land within different parts of the city identified through market assessment as being more favourable than others.
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C.21 Certain areas of the city have been identified as ideal locations to help drive the city's transformation agenda. Other areas of the city can provide for the everyday needs of industry and the market for development. The following outlines what are seen as the current employment areas of the city and how these might present future opportunities.
City Centre
C.22 There is a need to strengthen the wider city centre product in terms of retail, leisure, employment and image. A clear framework for this has already been set out in the City Centre Masterplan and the statutory policy framework to support its implementation is set out in the emerging City Centre Area Action Plan (CCAAP).
C.23 This includes a ‘city centre first’ policy for office development. This is a sequential test policy requiring evidence to demonstrate there are no appropriate sites within the city centre or the use is not appropriate in the city centre if wishing to develop an out of centre site. It is therefore not a ‘city centre only’ policy. The emerging CCAAP also defines ‘major development’ by floorspace so further helps to define what is appropriate in an 'out of centre' location.
C.24 A successful city centre is essential to the wider economic and social future of Hull and it should therefore be the principle priority for intervention and investment. A lack of office space in the city centre has led to development both outside of the city centre and outside of the city. It is important therefore to apply a strong policy framework, both within the city and with partners in the sub-region, to promote and facilitate further prime office development in this preferred location.
Eastern Corridor (and operational port)
C.25 This area is already the location of a number of longstanding Hull based firms and has been highlighted as the optimal location for port related manufacturing and logistics. In quantitative terms there is currently estimated to be around 40ha of land available here, which may increase as other uses consolidate and become more land efficient. In addition, the risk of flooding is less severe than other employment locations across the city.
C.26 Land values in the eastern corridor are currently lower than those in western Hull. This makes this area a strong contender for the relocation/transition of general industry and warehousing employment uses from the Heartlands area.
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C.27 The operational port land is very much geared around maximising value from goods and trade over the port. Associated British Ports (ABP) are keen to retain their land holdings in East Hull exclusively for operational port uses. It is therefore not considered available for general employment development.
C.28 The eastern corridor is one of the main locations in the city that can deliver employment development. The biggest opportunities within the area relate to a collection of sites around the centre of the Eastern Corridor – namely, the former Hedon Road Maternity Hospital, Humbrol, Burma Drive and former Fenners factory (including adjacent land). Combined, these could provide around 22 ha of land, over 50% of the land considered available in the corridor. Land at the eastern end of the corridor is available, some with planning permission, but possibly due to lower land values significant areas are currently used for storage in connection with the caravan industry. This is a very significant employer in the area with Willerby Holiday Homes, for example, occupying a site of 31 ha alone, recently reported to have purchased a further 3 ha of land for expansion.
Heartlands
C.29 Heartlands is the historical heart of industrial processing in Hull. The Victorian building stock and complex, narrow road network means that it is no longer as suitable for modern business requirements, without significantly altering its character. It would require significant transformation to continue to function as a successful employment area into the future. This area is also at significant risk of flooding.
C.30 The wealth of historic buildings and strong character should be considered an asset to the city. Comparable areas in other cities have become the focus for mixed use activity attracting creative industries and small businesses. This could complement activity in the city centre and the Fruit Market in particular. It is important that the City Centre areas are successful first to avoid competition.
C.31 It is recognised that the Heartlands is home to a number of companies contributing to the economy of Hull and providing employment opportunities. It is therefore possible that, over time, land hungry general industry and warehousing employment uses are encouraged to relocate to the eastern side of the river towards the eastern corridor. Access to the eastern side of the Heartland area is more effective than to the western side, Clough Road, and the western corridor. This can be achieved by making firms aware of what is available if they are looking to expand and relocate. The public sector may have to acquire land to enable relocation.
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C.32 Significant land could be made available on identified areas of vacant, underused or derelict sites. However, the constraint and significant investment required would restrict this until later in the plan period. Depending on the strategy adopted for the Heartlands this land may not be made available for employment uses in the longer term.
Clough Road
C.33 There is a significant amount of land available for development along Clough Road. The development of i-Park sets the benchmark of what can be achieved in this location. As Sutton Fields is reaching capacity and Heartlands is no longer suitable for modern industry/warehousing employment (both of which are in close proximity to Clough Road), it is suggested that Clough Road is an important location for accommodating internal demand for such uses in the future.
Sutton Fields
C.34 Sutton Fields is a significant and successful industrial area. It has been developed to almost its full capacity, on an available plot basis. However, parts of the estate have been developed at low density. Intensification opportunities could be available if landowners are willing to sell surplus land.
C.35 It is considered that whilst it will continue to see good demand, the configuration of Sutton Fields is becoming tired and in need of image enhancement. A management strategy could help in this respect.
C.36 Given its proximity opportunities at Clough Road could provide ‘move on space’ from Sutton Fields, if occupiers are seeking to relocate or expand.
Kingswood
C.37 Kingswood represents the only 'greenfield' employment land in the city with sufficient capacity to accommodate substantial development. Despite being the only land immediately available for development in the city with no contamination issues, it is reported that its peripheral location, the high risk of flooding and the ‘occupation package’ offered by the landowner, are all factors discouraging employment take up here.
C.38 However, it may be possible to overcome these issues via better marketing and branding of the area and linking it to specific opportunities, for example research and development facilities in connection with Hull University.
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Western Corridor
C.39 The food processing and health care sectors are clustered in this area. It is the preferred location for many businesses due to its excellent connectivity to the strategic road network. Much of the land is available in the short to medium term (as close to 'oven ready' as Hull has got in a location of market demand). However, it is vulnerable to competing uses and there is evidence that past decision making has resulted in some of this land being developed for less strategic employment uses (i.e. car show rooms and retail warehouses), eroding the potential supply.
C.40 In the past some city centre uses have relocated here, i.e. solicitors, insurance companies and bank call centres which occupy small to medium sized offices. It is important that this area has its own distinct employment role and does not detract from the city centre as a primary office location.
C.41 Further 'windfall' land supply may derive from the older premises around Witty Street. It is acknowledged that the eastern part of this corridor has a fringe to the city centre, Humber Quays and Hull Marina.
C.42 A master-planning exercise or policy approach may help to understand how this area aids the transition from an employment area to a more (mixed use) city centre. This could also send a clear message to the market that this is an employment focused area and windfalls arising will be expected to be developed for employment uses. This may help to avoid 'land banking' and hope for higher land values, consequently delivering sites to the market.
Future phasing of bringing land forward
C.43 The following table C.1 outlines a suggested approach of how areas of the city can bring forward an appropriate portfolio of land to meet requirements.
Table C.1
Area of Suggested Approach Key areas/sites City
Key employment area which should be the primary focus for future employment development
City Centre Approach: Take forward the City Centre Area Humber Quays; Fruit Market. Action Plan policy approach which advocates the City Centre first for primary office
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Area of Suggested Approach Key areas/sites City
development. Build on the success of Humber Quays and focus on creating activity and establishing occupier confidence.
Phasing: Significant momentum has already been achieved. Therefore delivery could be achieved in the short to medium term.
Eastern Approach: Identify as key employment area Hedon Road Maternity Corridor in the city. Retain emerging windfall sites for Hospital; research, light/general industry and Humbrol; Burma Drive; warehousing employment use. Resist Fenners. competition from alternative uses unless can demonstrate role is complementary to employment activity.
Phasing: With appropriate investment could deliver quality employment development in the medium term.
Western Approach: Identify as key employment area Remainder of Priory Park; Corridor in the city. Emerging windfall sites should be Birds Eye site. retained for research, light/general industry and warehousing employment use. In conformity with the CCAAP policy on office development B1a office development should demonstrate why it cannot be located in the city centre first. Competition from alternative uses should be resisted unless a complementary role to employment activity is demonstrated.
Phasing: High priority for action to set precedent for the city. Much of the land is available in the short to medium term.
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Area of Suggested Approach Key areas/sites City
Clough Approach: Identify as a key employment area National Grid site; Road in the city. Seek to retain emerging windfall Areas to the north of Clough sites for research, light/general industry and Road; warehousing employment use; and resist Remainder of Bankside. competition from alternative uses unless it can be demonstrated that their role is complementary to employment activity. Capacity of the road network needs to be improved.
Phasing: May provide opportunity in the medium term.
Maintain and maximise current role and potential
Operational Safeguarded by owner for port operations. Not relevant. Port
Sutton Approach: Identify as an existing employment No key sites. Fields area, promoting a framework to enable its intensification and recycling for employment uses and uses which complement its employment role. A simple management strategy could help to identify intensification opportunities but no substantial new opportunities.
Phasing: On going recycling and intensification opportunities will continue to deliver a supply of land for indigenous companies.
Kingswood Approach: Undertake marketing and branding All land identified for of the area and link it to specific opportunities, employment for example research and development facilities in connection with Hull University.
Phasing: Land is immediately available for development.
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Area of Suggested Approach Key areas/sites City
Longer term change / which involves a reduced and refocused employment role
Heartlands Approach: Identify as an area of change. Large vacant and derelict Potentially encourage a mix of uses to take areas could potentially advantage of the unique characteristics of this become available. area. Over time general industry and Use would depend on an warehousing uses could be encouraged to overall masterplan for the relocate to the eastern side of the river Hull area. and towards the Eastern Corridor, Clough Road and Western Corridor.
Phasing: This area represents a longer term opportunity and depends on actions and success in other areas.
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C.44 A suggested objective and options are put forward including:
Objective 20
Bring forward sufficient land of a suitable quality and in the right locations to meet expected needs for industrial and commercial development.
Option 20
A. In terms of overall provision:
1. Safeguard employment land in the longer term from competing uses reflecting the needs identified through the most aspirational scenario used to project / model employment land needs. To take a low growth scenario could lead to loss of land to housing.
2. Identify particular sites or areas of the city for particular uses in the hope of safeguarding areas for specific clusters – or alternatively allocate land for general employment use to maintain maximum flexibility, although with a risk that slower cluster growth may loose out to less strategic uses.
B. In terms of phasing:
1. Identify a phasing strategy based on different areas of the city and the ease with which beneficial uses can be achieved, as outlined in table C.1. This would require an action programme to be developed in assessing different forms of intervention including land assembly.
2. Alternatively adopt a more ad hoc approach as opportunities allow, although this could limit long term economic potential denying opportunities for long term economic transformation.
C.45 A suggested preferred option is a combination of these options. In terms of overall provision the more aspirational scenario should be followed. Particular areas of the city should be identified for specific clusters. In terms of phasing the approach and actions should be based on an approach similar to that proposed in table C.1, along with those suggetsed below.
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Delivering Transformation
C.46 Delivering transformational change requires a ‘stepped approach' to delivery and implementation. This is referred to in Section 5 which discusses the approach of how to take forward projected scenarios for the city. There are actions in the short term required to release land in the medium to long term. A significant amount of land would be unlikely to come forward until phases 2 and 3, as outlined in Table C.2 below.
Table C.2
Phase 1 – Short Term Phase 2 – Medium Term Phase 3 – Long Term 2008-2014 2014-2020 2020-2026
City Wide Investment Strategy A63 Castle Street Improvement A63 Castle Street Improvement Scheme funded and started Scheme completed Strengthen city centre product / offer Deliver city centre uses – city City Centre as then Deliver city centre uses centre as location of choice location of choice Develop Easter Corridor Deliver eastern corridor sites Development Strategy Develop Heartlands Development River Hull Impoundment Deliver offer in Strategy Heartlands to complement city centre Develop land at Clough Road Examine capacity of Clough Road and programme transport improvements – continue to develop land at Clough Road Sutton Fields Management Strategy Promote Kingswood as location of Continue to develop land in at choice for R&D – develop land at Kingswood Kingswood Develop land in Western Corridor Continue to develop land in Western Corridor
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C.47 Responsibility for delivering these actions will rest with various agencies and organisations including:
Hull Forward as the major regeneration and economic development company in the city, and as a key partner bringing in funding from agencies such as English Partnerships and Yorkshire Forward;
the Council, as the Local Planning Authority, has a role in reserving land for future employment development. This is both in terms of the plan making process but also in ensuring that what is developed is in accord with the plan provisions which seek to support the economic development of the city;
landowners, to open up land where required and not to 'land bank' in the hope of higher value uses; and
the Highways Agency to bring forward the A63 Castle Street improvement scheme.
C.48 Delivery of economic transformation in the city will rely on adopting a comprehensive strategy in different areas of the city. The strategy should specifically focus on how areas may change, and the approach to be taken to reconfigure and recycle land. Such an approach will rely on strong leadership and an integrated approach at all levels and across organisations. It is critical that support is also given by the neighbouring East Riding of Yorkshire Council in enabling the approach for areas, particularly the approach to office development in the City Centre. The Sub National Review will help to develop new approaches that will facilitate this joining up of approaches, particularly in its support for collaboration between authorities across economic areas.
Monitoring
C.49 We will measure performance of a preferred option by:
monitoring employment proposals and developments;
taking soundings from the market;
monitoring employment numbers against projected levels; and
reviewing updated projections as appropriate.
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D Education, learning and skills School and higher education provision D.1 Education in the city is of great importance. The Community Strategy places 'Education, Learning and Skills' as one of its three core priorities for the next five years. In the City Council's Strategic Framework the first corporate aim is 'the promotion and respect of learning'.
D.2 The key targets identified in the Community Strategy for education include:
to transform Hull schools so that they are at the hub of local communities by investing in their physical fabric (Building Schools for the Future and Transforming Our Primary Schools) and extending the network of community schools which offer a wide range of local services and facilities;
improve literacy and numeracy; and
improve participation and achievement in post 16 learning by reducing the number of 16-19 year olds not in education, employment or training and establishing progression routes between the three levels of education.
D.3 These targets are to be achieved by:
ensuring the attainment rate for GCSE 5+ A* - C is the same as the national average (this requires an extra 20% of students achieving the standard);
increasing the proportion of residents leaving formal education with some qualifications (this requires an extra 20,000 people to gain some GCSE results); and
ensuring the proportion of Hull’s young people not in education, employment or training equals the national average (this requires a reduction of over 50% in comparison with current numbers).
D.4 Hull's Local Education Authority (LEA) maintains 14 secondary schools (1 with a sixth form), 71 primary schools (20 with early admission classes), 3 nursery schools, 17 pre-school play groups, 6 special schools and 4 pupil referral units. Of these schools 8 are classed as ‘specialist’ schools and 5 are considered ‘beacon’ schools.
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D.5 Falling school numbers of around 2,500 places to 2008 have resulted in plans to close several primary schools, bring certain ones together and reduce capacity in others. The City Council forecasts indicate that by 2017 the number of students needing a secondary school place will drop by 3,000 to around 14,200 although it is not clear what scenario this is based on. Table D.1 below shows the current state of secondary schools in the city.
Table D.1 Secondary school places and vacancies, 2007
School Places Current Numbers Vacant Places Attending Andrew Marvell Business and Enterprise 1200 1158 42 College Archbishop Thurstan School 891 873 18 David Lister School 1350 1104 246 Endeavour High School 1200 1019 181 Hull Trinity House 280 296 -16 Kelvin Hall School 950 991 -41 Kingswood College of Arts 1200 1077 123 Malet Lambert School 1400 1409 -9 Newland School for girls 890 842 48 Pickering High School 1100 949 151 St. Mary’s Sports College 1476 1534 -58 Sir Henry Cooper School 1082 685 397 Sydney Smith School 1642 1515 127 Winifred Holtby School 1650 1552 98
D.6 There are plans in place to help the city meet these challenges including:
‘Building Schools for the Future’ (BSF) programme;
Early Years Integrated Childcare Strategy;
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Family Learning Strategy;
Five Year Strategy for Children and learners;
Community Focused Schools Strategy;
14 – 19 agenda; and
Not in Education, Employment or Training Action Plan.
D.7 The aims of the BSF programme include:
improving links between all levels of schooling (including post – 16 education);
attracting high quality teaching staff;
focusing on employment training for 14-19 year olds;
improving leisure / sporting facilities; and
encouraging ‘out of hours’ activities for students and local communities.
D.8 The BSF proposals include reducing the number of secondary schools from 14 in 2007 to 12 by 2015, with Sydney Smith School (in west Hull) and David Lister (in east Hull) to close. Other changes include opening three new Academies and a Pathfinder Trust College.
D.9 Post 16 education in Hull is currently provided by sixth form facilities at St. Mary’s Sports College, Wilberforce College and Wyke College and local further / higher education at Hull College. Future 16+ provision is included in the BSF programme with ‘staying on’/'supported into post – 16 learning' facilities at the proposed Pickering Sports Academy and Archbishop Sentamu Academy.
D.10 Hull College attracts students from within and outside the city and is one of the largest further education providers in the region. It has recently expanded it's range of courses to provide more vocational and higher education options. It works closely with local businesses and public partnerships. It has four centres within Hull, including the Learning Zone at the KC Stadium (in partnership with the City Council), the Park Street Centre (which includes Hull College School of Art and Design), its main campus at Queen's Gardens and the Cannon Street Motor Vehicle Training Centre (which houses the School of Motor Vehicle, Fabrication and Welding). There are opportunities for Hull College to grow within the city centre.
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D.11 Hull University is the principle higher education provider in Hull. It first opened as the University College Hull in 1928 and has campuses in Hull (based at Cottingham Road) and Scarborough with a student population of around 18,000 across both campuses. A total of 2,300 people are employed by the university and they offer around 900 courses a year. It has been estimated that the University generates around £200 million a year for the local economy through investment and staff/student spending. More than 90% of UK graduates obtain jobs or go onto further studies shortly after graduation and it is consistently ranked amongst the top universities for graduate employability.
D.12 The University of Lincoln has a campus based in Hull City Centre. This building has recently undergone a major refurbishment with improved facilities and resources for students. On this campus the university runs the Hull Centre for Management Development and Hull School of Health and Social Care.
D.13 Education in the city is regarded as being important for all people. The City Council's Education Plan refers to 'cradle to grave' learning for ages ranging from early years to higher and adult learning. The Local Strategic Partnership for Adult Learning vision is 'to improve adult education and workforce skills'. Priorities to achieve this include:
reducing the number of residents who are economically inactive by supporting people back to work;
encouraging Hull employers to invest in improving the skills of their employees; and
encouraging the inward migration of skilled workers to support the expansion of key sectors of the economy.
D.14 Schools and colleges are a vital part of what makes sustainable communities. They should form an integral part of services designed for people including local shops, sports and other community facilities. Certain facilities are also needed in locations which are accessible to lots of people.
D.15 Part of the answer to improving learning in the city is to enable new or improve existing school facilities. This could require making land allocations or focusing investment in particular locations, such as those in complementing regeneration priorities. Extending the use of schools for the community beyond the school day also needs careful consideration (such as flood lighting for sports clubs use) so as not to harm local amenities.
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D.16 Facilities of themselves, are unlikely to significantly improve secondary school performance, in terms of meeting national GCSE A*- C targets, should this be considered a necessary objective. More wide ranging intervention is needed including making the city attractive to more young families.
D.17 Further education colleges needing wide catchments to make them viable, should be located in central locations, such as the city centre. There are active development programmes underway in the city centre by Hull College.
D.18 A suggested objective in terms of addressing future learning in the city is:
Objective 21
Improve existing and provide new education facilities to enable everyone to achieve their learning potential and equip them with necessary life and employment skills.
Option 21
The options to address this objective include:
1. support for school infrastructure so they are at the hub of local communities or in accessible central locations if meeting wider needs;
2. improve the availability of good quality childcare provision and pre - school education;
3. aid the continued expansion of higher education facilities;
4. target support for learning proposals in disadvantaged communities;
5. assist in retaining/attracting families into the city through promoting and planning for a more diverse housing stock, thereby helping to maintain sustainable prosperous communities.
D.19 A suggested preferred option is to combine these options.
D.20 We will measure performance of a preferred option by monitoring the development of education facilities as well as general indicators of education performance.
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D.21 Key people or organisations responsible for delivery of this suggested preferred option will mainly include;
the Council, as the Local Education Authority (Learning, Leisure and Achievement Services) who support schools and education facilities in the city. The Local Planning Authority has a role in reserving land for future regeneration initiatives through the plan making process and working with other agencies such as Gateway, in facilitating provision for housing and redevelopment schemes in regeneration priority areas;
Hull University, Hull College and the University of Lincoln; and
other service providers Health and Well Being, Skills and Employability and Hull Youth Development service.
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6 Suggested spatial vision for the city 6.1 Developing a new plan for the City involves determining an overall long term direction or vision that takes account of the issues and opportunities facing it. In preparing a plan for the city, the Council is required to have a ‘place related’ vision. This should set out the direction needed in addressing the challenges facing the city in land use and transport terms. A ‘place related’ vision is suggested which complements the one set out in the Community Strategy.
6.2 A number of visionary statements about the future of the City currently exist.
6.3 One Hull (Hull’s Local Strategic Partnership) has recently agreed a Community Strategy and a ‘vision’ for the City which is that by 2020:
Hull is a City which is living, learning, working, healthy and proud. One of the most important cities in Northern Europe, we are a gateway for global trade and the heart of a prosperous Humber sub-region.
6.4 The Community Strategy also has a number of visionary statements about the future City relating to key priorities. These visionary statements are to be delivered through Area Action Plans, currently under preparation.
6.5 There is a vision for the Hull and Humber Ports as set out in the first City - Region Development Programme, which states the area is:
A Global Gateway with a thriving, outward looking, sustainable economy, building on its unique assets of location, the estuary, ports, connectivity and physical environment, perpetually changing for the benefit of people, business and the environment, whilst making significant contributions to the sustainability of the regional, national and European communities.
6.6 The City’s latest Housing Strategy vision is:
Housing for a sustainable city which provides choice for all and meets the needs and aspirations of Hull’s people and those who wish to live here – creating the conditions for population growth in the longer term.
6.7 Gateway (the local Pathfinder which covers parts of Hull and East Riding of Yorkshire) also has a ‘vision’ as outlined in their Scheme Update (2006), which states:
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For the Hull housing market area to be a place where people choose to live, a place of prosperous, diverse and sustainable communities and vibrant neighbourhoods, providing an enviable quality of life for all.
6.8 Having separate ‘visions’ may be confusing but a place related vision is needed in complementing existing vision statements. A potential new vision for the Hull Local Development Framework based on the Community Strategy and wider spatial issues raised above, is put forward as follows:
By 2026, Hull will be a thriving regional city, with a high quality of life, good employment opportunities, and a wide range of popular, safe and sustainable neighbourhoods which maintain their distinctive feel and respect their historic past.
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7 More detailed planning matters 7.1 The Core Strategy addresses some of the big issues and provides the basis for more detailed plans such as Area Action Plans or Site Allocations Development Plan Documents. The Core Strategy will provide the basis for these more detailed plans that will show where development should occur on particular site. Other more detailed planning matters will require further consideration in these more detailed plans and include:
where should new housing, business and community facilities be best located in realising the broad locations being suggested in the Core Strategy;
reviewing parking standards;
what sort of house types should be built where and where should particular densities be applied in different parts of the city in helping achieve this;
what can be done to attract more inward investment to the city including removing physical constraints to development and assembling land;
how and where should we seek planning contributions which go beyond the currently required urban greenspace and waste recycling facilities;
should and how can planning contributions from developers be sought for public goods, such as flood defences or other flood mitigation measures;
where is the best location for renewable energy schemes if on-site renewables requirements can not be achieved or there is a reluctance to achieving them eg. wind turbines;
where are the best urban greenspaces that are of significant value to the community which should be protected from inappropriate development;
where are the best parts of the environment that need protecting from adverse development and where are the parts that need improving; or
when and where can the transport system be improved or better managed.
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8 Plan delivery and performance What is involved in delivering the vision 8.1 Delivering a vision is no easy feat. It requires the right sort of tools and commitment to delivery. This needs effective leadership. Commitment is needed from business and communities, in deciding what the best approach should be, in both determining the strategy and in implementing it. Collaborative working is key. Individual businesses or people can not seek to deliver the sorts of beneficial changes needed for the city as a whole by working in isolation or with strategies that address only part of the challenges facing the City.
8.2 The new planning system requires forward looking plans to be 'deliverable'. This means that companies and people should 'sign up' to and take ownership of those parts for which they have responsibility. Key companies and people have been actively involved in the preparation of this document so they can consider how their plans and strategies align or should be adapted. The potential for delivering significant physical change also arises through having new approaches to plan delivery including Hull Forward and Gateway.
8.3 Plans can be ‘flexible’ strategies for change or provide ‘certainty’ in the way it influences those people who contribute to ‘place shaping’ the City. Clearly, taking an overly flexible approach does not provide certainty that investors need. They need certainty because it helps determine whether to invest or continue to invest if they are already in the City. Plans clearly need to be produced which considers both flexibility (in taking account of change over the long term) while providing certainty to allow investment to occur without fear of this being wasted or in such a way that it does not occur at all, because risks are too high.
8.4 Sticking to a strategy in terms of delivery is important but this does not mean having a once and for all ‘blue-print’. The strategy should set a direction of travel and have built in markers to determine how well (or not) it is being achieved. Consideration should also be given to the risks associated with taking decisions which vary from the strategy. Taking actions which undermine the approach or commitment to a strategy is to be cautioned against because this may not lead to the effective management of change or to the delivery of the vision. Decisions likely to be taken for ‘local’ reasons must also take account of the longer term and wider strategic city interests.
8.5 Flexibility is inherent in the way the planning system operates. Development is normally accepted if it is in accord with the Development Plan unless other factors indicate otherwise. Other factors are usually significant exceptions that can override a plan but good reasons have to be given to set the plan to one side. Plans are also required to
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be kept under review in monitoring the effectiveness of policies and approach. They can be readily adapted if the vision and underlying objectives are not being achieved or the trajectory sought is not being delivered. Plans can have ‘in built trajectories’ or ‘milestones’ in assisting this review process.
8.6 To be effective, the Council as the Planning Authority will need to work with the market but be more pro-active in influencing its operation - by committing to a long term approach and delivery, rather than taking a reactive approach. Taking a ‘pro-active’ approach is also necessary for the wider City sub – region because proposals outside the City will have a considerable impact on it. This means taking a pro-active approach to proposals within those parts of East Riding most closely related to the function of Hull and the area it serves.
8.7 Current economic proposals being promoted in the outlying parts of the City may have considerable benefits in terms of providing jobs for City residents. Evidence put forward by Gateway suggests that employment opportunities in these locations would be realised by ‘information age’ uses/skills but this could see economic displacement from the City alongside residents moving closer to where they work. The potential consequences of this include further city de-population and related city under performance.
Measuring plan performance 8.8 Previous sections of this document set out a range of options in tackling key planning issues facing the future city. These will be developed into 'preferred options' and 'policies' as part of an integrated plan. These will need to be measured so their performance can be assessed. We have outlined some key indicators in the report but there may be others. We also need to make sure that indicators chosen can be readily measured. The Sustainability Appraisal report outlines key baseline information that can be used in judging future plan performance.
8.9 Monitoring should be carried out to determine whether plan objectives and policies are being reached over the plan period. Monitoring planning permissions will be a key way of judging how well (or not) policies are being delivered. Certain permissions result in development although some may be carried out on the basis of a land valuation exercise or as a means to realising land as an asset.
8.10 As prospective demand is used up this has an adverse effect on the more difficult or problematic sites because this potentially deters investors who are risk averse and need to know what competition exists (including existing planning permissions). In
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certain cases the grant of planning permission can adversely affect the long term potential use of land eg. granting housing permissions on allocated employment sites, will make it difficult to realise economic growth.
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9 Having a comprehensive and sound evidence base 9.1 Taking a 'plan led' approach to managing future development and investment requires having a sound and evidence based plan as a starting point. There are risks involved in letting the free market decide what goes where and when. The City housing market in particular needs proactive intervention. The economy needs to be more effectively ‘plan led’ given it’s continued under performance. Addressing ingrained and long standing deprivation in the City also needs effective intervention as the market has so far been ineffective in ‘trickling down’ recognisable benefits to local people.
9.2 A plan-led approach also requires evidence to support a direction of travel. There is limited prospects for securing change and commitment from others if plans are based on 'wish lists'. The Government makes clear that evidence is needed to justify options and policies. If this is not provided then a plan will not be found 'sound' at Public Examination. A comprehensive evidence base is being put together with the help of key stakeholders in the city. This work includes the following:
1. Housing Market Assessment - completed May 2008
2. Housing Land Availability Assessment - for completion end 2008
3. Employment Land Review - nearing completion, June 2008 anticipated date
4. Open space audit and recreation/sports provision assessment - for completion mid 2008
5. Retail Assessment - completed
6. Strategic Flood Risk Assessment - completed
7. Sustainability Appraisals - ongoing but a Sustainability Framework has been completed
8. Habitat Regulations Assessments - ongoing
9.3 This work is being progressed by engaging with stakeholders at a Hull Development Framework Forum and other events including ‘one to one’ meetings. Our evidence base is being made available to view on the Council web site or in paper form, on
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request. The evidence base is expected to be completed prior to release of the ‘submission’ draft Core Strategy. Some is being co-funded with other service areas or partner organisations.
9.4 Further evidence base work is expected to be completed over the course of 2008/9 as resources and capacity to procure external support allows. Anticipated further evidence base work includes the following:
infrastructure plan/assessment;
leisure/tourism needs assessment;
character area assessment; and
renewables assessment
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Appendix i: Hull Development Framework forum members
Age Concern Healthy Living Centre Andrew Martin Associates Arc Area Directors, Hull City Council ASB Project Co-ordinator, Hull City Council Atisreal Barclays Bank Barton Willmore Biffa Building Schools for the Future Business Link Humber Campaign for the Preservation of Rural England (East Riding) Capital Plans and Programmes Manager, Hull City Council Chairs of Area Committees, Hull City Council CHEF Chevin Housing Association Children & Young People Services, Hull City Council Common Purpose Humber Community Development and Customer Care Community Participation Officer, Hull City Council Community Recreation Innovator, Hull City Council Community Use of Schools Advisor, Hull City Council Connexions Humber Corporate Policy & Research Manager, Hull City Council Development Planning Partnership
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Drivers Jonas DTZ East Riding of Yorkshire Council East Yorkshire Motor Services Ltd English Partnerships Entec Uk Ltd Environment Agency Friends of the Earth Fusion Online Limited Garden Village Society Gateway Hull Giroscope Government Office for Yorkshire and the Humber Haslam Homes Highways Agency Home Builders Federation Housing Services, Hull City Council Hull & Humber Chamber of Commerce, Industry & Shipping Hull and District Chamber of Trade Hull Business Forum Hull Churches Housing Association Forum Hull Citysafe Hull Civic Society Hull College Hull Community Network Hull Forward (previously Hull Citybuild) Hull Teaching Primary Care Trust Hull-Holderness Congregation of Jehovah's Witnesses
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Humber All Nations Alliance Humber Economic Partnership Humber INCA Humberside Police Jobcentre Plus John Thompson Developments Ltd Kingswood Parks Development Company Learning and Skills Council Lifelong Learning Children and Young Peoples Services Network Rail NISP/Link2Energy Northern England Freight Transport Association - Northern Region One Hull - Local Strategic Partnership Physical Activity Manager, Hull City Council Planning Committee Chairman, Hull City Council Road Haulage Association Ltd RSPB Sadeh Lok Housing Group Limited School Organisation and Planning, Hull City Council Scotts Chartered Surveyors Scruton's & Co (Builders) Ltd Shrie Consulting Smart Planning Ltd Sports Development, Hull City Council Stagecoach in Hull University of Hull White Young Green WRG
Issues, options and suggested preferred option 145 HDF Core Strategy
Wright Homes Y&H Highways Agency Yorkshire & Humber Assembly Yorkshire and the Humber TUC Yorkshire Culture Yorkshire Forward
146 Issues, options and suggested preferred option HDF Core Strategy
Appendix ii: Use Classes Order The following classes of use are set out in the Town and Country Planning (Use Classes) Order 1987 and its subsequent amendments.
A1 Shops - Shops, retail warehouses, hairdressers, undertakers, travel and ticket agencies, post offices, pet shops, sandwich bars, showrooms, domestic hire shops, dry cleaners and funeral directors.
A2 Financial and professional services - Banks, building societies, estate and employment agencies, professional and financial services and betting offices.
A3 Restaurants and cafés - For the sale of food and drink for consumption on the premises - restaurants, snack bars and cafes.
A4 Drinking establishments - Public houses, wine bars or other drinking establishments (but not a night clubs).
A5 Hot food takeaways - For the sale of hot food for consumption off the premises.
B1 Business - (a) Offices; (b) research and development; and (c) light industry appropriate in a residential area.
B2 General industrial
B3-B7 Special Industrial Groups - See 'Use Classes Schedule'.
B8 Storage or distribution - This class includes open air storage.
C1 Hotels - Hotels, boarding and guest houses where no significant element of care is provided.
C2 Residential institutions - Residential care homes, hospitals, nursing homes, boarding schools, residential colleges and training centres.
C2A Secure Residential Institution - Use for a provision of secure residential accommodation, including use as a prison, young offenders institution, detention centre, secure training centre, custody centre, short term holding centre, secure hospital, secure local authority accommodation or use as a military barracks.
C3 Dwelling houses - Family houses, or houses occupied by up to six residents living together as a single household, including a household where care is provided for residents.
Issues, options and suggested preferred option 147 HDF Core Strategy
D1 Non-residential institutions - Clinics, health centres, crèches, day nurseries, day centres, schools, art galleries, museums, libraries, halls, places of worship, church halls, law court. Non residential education and training centres.
D2 Assembly and leisure - Cinemas, music and concert halls, bingo and dance halls (but not night clubs), swimming baths, skating rinks, gymnasiums or sports arenas (except for motor sports, or where firearms are used).
Sui Generis - These are unique cases and include theatres, houses in multiple paying occupation, hostels providing no significant element of care, scrap yards, petrol filling stations and shops selling and/or displaying motor vehicles, retail warehouse clubs, nightclubs, launderettes, taxi businesses, amusement centres, and casinos.
148 Issues, options and suggested preferred option • Spatial Options Map Key Retain for predominantly employment uses (Option 20) Current regeneration areas - focus of major physical change (Option 3) West and East Hull - # focus of physical change (Option 3) 0 Existing urban extension for housing (Option 8c) Areas of potential change - possible mixed use (employment and housing) (Option 8 and 20) I1 Areas of potential change - possible new housing (Option 8) # DC Existing shopping centres (Option 11 and 12) ILC # DC - District centres 0 LLC - Large Local Centres 0 I1 ILC - Important Local Centres 0 Proposed service hubs (Option 12) Existing urban greenspace (Option 17 and 19)
0 Main roads 0 Rail 0 # ILC 0 Active floodplain (Option 5) # 0 Proposed new and remodelled schools 0 (under BSF proposals) (Option 21) 0 LLC 0 I1 Existing park and ride sites # I1 Possible park and ride sites (Option 6) DC 0 IC Strategic health sites (Option 15) I1 # General Options ILC # I1 Option 1 - Sustainable development I1 Option 2 - Sustainable communities IC Option 4 - Climate change 0 Option 7 - Infrastructure funding Option 9 - Housing mix, density and design Option 10 - Brownfield targets DC # Option 13 - Tourism 0 Option 14 - Healthy living Option 16 - Quality of place Option 18 - Heritage
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