CASTLETOWN REGENERATION PLAN
BASELINE ASSESSMENT REPORT
FINAL REPORT OCTOBER 2005 CASTLETOWN REGENERATION PLAN
BASELINE ASSESSMENT REPORT
FINAL REPORT OCTOBER 2005
Prepared by:
Nathaniel Lichfield & Partners
In association with:
Social Regeneration Consultants Mayer Brown Storeys:SSP Faithful & Gould
Nathaniel Lichfield & Partners Ltd Generator Studios Trafalgar Street Newcastle Upon Tyne NE1 2LA T 0191 261 5685 Offices also in: F 0191 261 9180 Cardiff E [email protected] London www.nlpplanning.com Manchester CONTENTS 1.0 INTRODUCTION ...... 1 Report Structure ...... 1 2.0 BACKGROUND ...... 2 The Context ...... 2 Area Profile and Characteristics ...... 2 Project Aims...... 4 3.0 POLICY FRAMEWORK REVIEW ...... 6 Introduction...... 6 Summary ...... 7 PPG 3 ...... 8 PPG4 ...... 9 PPS6...... 10 Draft Regional Spatial Strategy ...... 12 Regional Housing Strategy (Consultation Draft)...... 14 Draft Regional Economic Strategy...... 15 The Tyne and Wear City Region Development Programme ...... 17 Leading the Way: The TyneWear Economic Strategy...... 19 The Sunderland Unitary Development Plan ...... 20 The Sunderland Strategy 2004 – 2007...... 22 City of Sunderland Housing Strategy...... 22 Interim Strategy for Housing Land ...... 22 Safer Sunderland Strategy 2005 – 2008 ...... 22 Future City Future Lives: Sustainable Development Strategy ...... 22 Neighbourhood Renewal Assessment: Barron Street South and Castle Street South ...... 22 4.0 URBAN CHARACTER ASSESSMENT ...... 22 Introduction...... 22 National Policy...... 22 Urban White Paper ...... 22 Other National Guidance and Initiatives ...... 22 Regional Policy...... 22 Summary ...... 22 General area overview...... 22 Character Areas...... 22 Constraints and Opportunities ...... 22 5.0 HOUSING MARKET ASSESSMENT...... 22 Housing Demand ...... 22 Future Demand Profiles...... 22 Housing Supply...... 22 Castletown Implications for Regeneration ...... 22 6.0 THE FUNCTION AND ROLE OF CASTLETOWN...... 22 Introduction...... 22 Migration...... 22 Travel to Work/Journey to Work ...... 22 Estate Agent Feedback ...... 22 Submarkets Summary ...... 22
NE2005\R20121-001 BASELINE REPORT 7.0 DEMAND AND SUPPLY: CASTLETOWN CONTEXT ...... 22 Analysis of Key Demographic and Socio-Economic Data ...... 22 Demographic Trends ...... 22 Population / Household Numbers / Household Size...... 22 Age Profile ...... 22 Household Composition...... 22 Demographics summary...... 22 Socio-Economic Analysis ...... 22 House prices...... 22 Income & the Price Income Relationship...... 22 Unemployment / Benefit rates ...... 22 Socio-economic groups ...... 22 Index of Multiple Deprivation (IMD) 2004 ...... 22 Socio-Economic Summary ...... 22 8.0 HOUSING STOCK ...... 22 Introduction...... 22 Tenure ...... 22 Dwelling Type ...... 22 Stock Condition...... 22 Voids...... 22 Sunderland Housing Group Stock ...... 22 9.0 VITALITY MATRIX ...... 22 Methodology ...... 22 10.0 SUMMARY ...... 22 Housing Market Drivers ...... 22 Structural ...... 22 Locational ...... 22 Aspirations...... 22 Policy Drivers...... 22 Housing Market Assessment Conclusions ...... 22 Housing Market Function...... 22 Sustainability...... 22 Diversification of tenure/dwelling stock...... 22 Environmental/Neighbourhood improvement ...... 22 11.0 TRANSPORT STUDY ...... 22 Introduction...... 22 Area Review ...... 22 Accessibility on Foot ...... 22 Accessibility by Cycle ...... 22 Accessibility by Private Car ...... 22 Road Safety...... 22 Traffic Flow Data...... 22 Policy and Strategic...... 22 Overall Points/Issues to date ...... 22 12.0 COMMUNITY AUDIT...... 22 Introduction...... 22 Facility audit...... 22
NE2005\R20121-001 BASELINE REPORT 13.0 MARKET ASSESSMENT...... 22 Introduction...... 22 14.0 STAKEHOLDER CONSULTATION...... 22 Introduction...... 22 Housing and Development ...... 22 Business ...... 22 Environment...... 22 Community, Local Services and Resident Consultation ...... 22 APPENDICES...... 22
NE2005\R20121-001 BASELINE REPORT 1.0 INTRODUCTION
1.1 This Baseline Report has been prepared by Nathaniel Lichfield & Partners (NLP) Planning, Design and Economic Consultants, in association with Social Regeneration Consultants (SRC), Mayer Brown (MB) and Storeys:SSP (SSSP) on behalf of Sunderland City Council (SCC).
Report Structure
1.2 The baseline consists of a number of separate reports prepared by each consultant and presented here as follows:
x Policy Review
x Housing Market Assessment
x Community Audit , Stakeholder and Resident Consultation
x Urban Character Assessment
x Market Assessment ; and
x Transport Study.
1.3 The report is essentially broken down into two main parts. The first volume essentially sets the background for the baseline and contains:
i) The background to the study alongside a review of the strategic context at the national, regional sub-regional and local level.
1.4 The second volume presents the baseline information gathered by the consultants as follows:
ii) An examination of the housing market in Castletown, the land use and environmental conditions, an audit of community facilities and services, a transport and market assessment study and the results from the resident and stakeholder consultations.
1.5 The report will be accompanied by a detailed Appendix document which outlines the detailed findings from the Resident and Stakeholder Consultation.
1 2.0 BACKGROUND
The Context
2.1 The private sector house condition survey completed in 2002 identified parts of the Castletown area as being in an advanced stage of decline. Consequently the Council in 2003 commissioned Neighbourhood Renewal Assessments (NRA’s) of housing on Baron Street South and Castle Street South (odd numbers) which found that the properties exhibited the systems associated with rundown housing whilst demonstrating high levels of physical housing stress.
2.2 As a comparison they represented some of the poorest quality housing in the city with a high vacancy and abandonment rate, serious disrepair and unfitness, low demand and low value with an over representation of the private rented sector.
2.3 An evaluation of the options generated as par of the NRA process determined that the widening of the study area with a view to an area based regeneration scheme represented the best course of action by SCC in order to deliver housing renewal objectives.
2.4 As a continuing part of SCC work in the area a programme of property purchasing followed by demolition in the two streets identified above has taken place. To date SCC have purchased outright approximately 33 properties across the study area and demolished 32 no properties within the two streets. Further work to purchase and then demolish will continue within those two streets.
Area Profile and Characteristics
2.5 The area grew rapidly from the mid to late 1800’s to support the local coal mines with an original mix of typical working class terraces and Sunderland Cottages. Sunderland and its surrounding small towns and villages grew, stagnated and grew again over the decades to support both the coal mines, riverside industries and aging population with significant levels of council housing built in between the wars and in the 1950’s.
2 2.6 In the last 10 – 15 years the community has suffered from the economic decline in the north east with a resulting gradual decline in the social and physical environment. There has been a dramatic rise in the private rented housing sector, residents moving on as the housing on offer in the area does not meet there increasing aspirations and an general rise in crime and anti social behaviour.
2.7 Moreover it is increasingly clear that the problems surrounding low demand are mutually reinforcing, with low demand exacerbating problems of obsolescence and subsequently unfitness, which in turn reinforces low demand.
2.8 The Castletown study area is located to the west of the city centre and north of the River Wear. Its southern boundary is Wessington Way (A1231) with the northern boundary represented by Hylton Dene. The study area covers an area of approximately 41ha consisting largely of residential properties (906 no), with small elements of retail and community use as well as a part of Hylton Dene.
2.9 The housing is a mix of ages and styles, but a significant majority of units comprise terraced housing. Some of this is old, small and in poor condition. Accessibility is varied with long terraces interspersed with open access ‘Radburn’ style housing. Quality open space and major landscaping/mature treescape is limited to the edges and larger peripheral gardens.
2.10 Recent commercial development in the Study area and the adjoining areas has not been aimed at meeting the needs of the local population. Retail warehousing, car showroom and fast food uses at the eastern end of the Study area are reliant on car-borne customers. To the south of Wessington Way, extensive office and industrial development during the 1990s relied on Enterprise Zone status.
2.11 The River Wear and Hylton Dene are natural assets that are close to but not adjoining the study area. A plan indicating the study area boundary is located in Appendix A.
3 Strengths x Close proximity to the A19 – good access to the regional and national road network x Schools within the Neighbourhood – Castletown Primary School and Castleview Secondary School x Nearby employment, retail and leisure opportunities – Hylton Riverside x Local Centre – Ethel Terrace with small supermarket, post office and other varied small retail shops; and x Distinct neighbourhood feel – no major through roads and central focus.
Weaknesses x Retail park impact on area’s perception – new focus on entrance to Sunderland from the west x Lack of quality internal public space – non-integrated space left after development/demolition x Poor quality terraced housing having disproportionate impact on the area – impact of demolished and boarded up properties on Barron St South and Castle St South; and x Lack of modern housing – last major investment in new housing was in the 1970’s.
Project Aims
2.12 The main aim of the study is to produce a comprehensive Masterplan which once adopted can deliver significant change in the Castletown area through a mixture of housing, environment and social investment.
2.13 The specific aim is to provide SCC with the following: x Masterplan for Development x Implementation Strategy x Transport Study; and x Sustainability Assessment.
2.14 These will collectively comprise the Regeneration Masterplan which will form the basis of the proposals for regeneration in the area through the adoption of the plan by SCC as a Supplementary Planning Document to the Local
4 Development Framework which itself is programmed to be adopted in early 2008.
2.15 An essential part of the project is that local people, and community and voluntary groups are involved in developing proposals for the area. It is also essential that agencies and service providers, businesses and commercial interests and other stakeholders put their views forward and are involved in the process.
5 3.0 POLICY FRAMEWORK REVIEW
Introduction
3.1 The purpose of this section is to provide a strategic context for the regeneration of Castletown. The following national, regional and local policy documents have been reviewed:
National
x PPG 3
x PPG4
x PPS 6
Regional
x Draft Regional Spatial Strategy
x Regional Housing Strategy (Consultation Draft)
x Draft Regional Economic Strategy
Sub-Regional
x The Tyne and Wear City Region Development Programme
x Leading the Way: The TyneWear Economic Strategy
Local
x The Sunderland Unitary Development Plan
x The Sunderland Strategy 2004 - 2007
x City of Sunderland Housing Strategy
x Interim Strategy for Housing Land
x Safer Sunderland Strategy 2005 – 2008
x Future City Future Lives: Sustainable Development Strategy
x Neighbourhood Renewal Assessment: Barron Street South and Castle Street South
6 3.2 In addition, the key policy documents which are of relevance to this study with respect to transport are reviewed in Section 6.
Summary
3.3 The key policy messages highlighted by the above documents and reviewed in more detail throughout this section are as follows: x The North East must provide housing of the necessary quality and variety to allow the Region to attract and retain highly skilled workers in order to realise the Region’s economic growth aspirations x A focus upon high quality design and the creation of quality environments should be embedded within all new and existing developments x Housing market renewal should be undertaken through the development of a partnership approach. Investment is provided by a variety of sources including ALMOs, the North East Housing Board and the private sector and these funding streams must be aligned to maximise the collective impact of resources x New housing developments should be concentrated within the conurbations of Tyne and Wear, as it is anticipated that the majority of population growth will be focussed in these areas x Industrial restructuring has left some of Tyne and Wear’s older housing areas in decline and much of this housing stock no longer meets the needs of residents x The housing market within Castletown Downs needs restructuring. This can be achieved through the diversification of the housing stock and tenure type within the area to help create sustainable communities x To ensure that the correct type of development to come forward within Castletown, policies will need to set out the aspirations for the study area x Any proposals for new housing developments or the restructuring of existing housing areas should promote ‘designing out crime’ principles, to address community safety and anti-social behaviour problems within the study area x It is vital that people can travel to places of work and learning in order to promote social inclusion. An appropriate policy response is required to improve ease of movement within Ethel Terrace x Strategies are required to ensure the long term sustainability of Ethel Terrace, through concentrating development within the existing local centre, providing a wide range of attractive facilities and ensuring that it is well served by a range of means of transport; and x Employment land within Castletown should be focussed upon meeting the needs of new and indigenous business growth and well served by infrastructure.
7 PPG 3
3.4 PPG3, produced by the ODPM, provides guidance regarding how planning policies at a regional and local level should take forward housing development. The document recommends that housing policies should be linked to economic growth strategies to ensure that economic growth is not frustrated by a lack of homes for those wishing to take up employment opportunities.
3.5 However, economic forecasting is only one element in ensuring an appropriate provision of housing; household growth projections, and environmental issues must also be taken into account, as well as the needs of the local community. Such an approach ensures that the correct balance of housing is provided to meet the aspirations of an area’s population, as well as its economic needs. In addition, the provision of wider housing opportunities, in terms of size, type and location is central to this approach.
3.6 PPG3 is underpinned by the principle of sustainable development, advocating the re-use of previously developed land within urban areas and bringing empty homes back into use in preference to the development of Greenfield sites. It also recommends densities of 30-50 dwellings per hectare for new developments and car parking of 1.5 spaces per dwelling to promote the efficient use of land.
3.7 Furthermore, the document also identifies other measures that should be adopted to promote more sustainable residential environments. These include providing a greener residential environment, locating housing developments around major nodes with good quality public transport and placing greater emphasis on the quality and design of places.
3.8 With respect to the design of new developments, PPG3 advocates the creation of attractive places with their own distinctive identity, but which also respect and enhance local character. In addition, the document states that Local Planning Authorities should look to promote design and layouts which take account of public health, crime prevention and community safety considerations and place pedestrian movement ahead of vehicles to create a quality living environment.
8 3.9 Proposed changes to PPG3 intend to enable LPAs to set out the type/tenure/affordability of housing required, based upon the findings of detailed local housing market assessments.
PPG4
3.10 PPG4, produced by the ODPM, provides planning guidance in relation to the development of industrial and commercial premises. It recommends that planning authorities should look to provide choice, flexibility and competition in the provision of land for industry and commerce and should be realistic in their assessment of business needs when allocating land for these uses. LPAs should ensure that there is a variety of sufficient land available that is well served by infrastructure, and ready for development to meet different employer needs.
3.11 With respect to this aim, a series of retail warehouse units are located in the east of the Castletown area. The area also contains the Hylton Riverside Retail Park, where demand for retail warehouse accommodation is strong; there are no vacant units in the area and rental values have been increasing.
3.12 PPG4 also recognises that continued economic development is a Government priority but that this must be pursued in conjunction with the maintenance and enhancement of a high quality environment.
3.13 The document acknowledges that separating industry and commerce (especially small scale developments) from residential communities for whom they are a source of employment and services may not be appropriate. Therefore, development plan policies should not seek to unreasonably restrict commercial and industrial activities of an appropriate scale, in areas which are primarily residential, provided the proposals would not adversely affect residential amenity.
3.14 Recent Government guidance regarding Employment Land Reviews highlights the need for both quantitative and qualitative assessments of employment land. Employment land supply should not restrict an area’s future economic growth and therefore needs to be in alignment with the future labour force.
9 3.15 Recent changes to PPG3 enable housing to come forward on redundant employment land with the onus on the LPA to demonstrate why sites of this nature should not be used for housing.
PPS6
3.16 Produced by the ODPM, PPS6 sets out the Government’s national policies and principles with respect to the future of town centres. The document states that the Government’s key objective in relation to town centres is to promote their vitality and viability by: x Planning for the growth and development of existing centres; and x Promoting and enhancing existing centres, by focusing development in such centres and encouraging a wide range of services in a good environment that is accessible to all.
3.17 In addition to this key objective, PPS6 advocates enhancing consumer choice by providing jobs, shopping and leisure facilities and a wide range of services in town centres. Existing and new development should be well served by a choice of means of transport, to reduce reliance on the private car.
3.18 To help achieve this, the document recommends that Local Planning Authorities: x Promote growth and manage change in town centres x Define a network and hierarchy of centres; and x Adopt a proactive, plan-led approach to planning for town centres.
Promote Growth and Manage Change
3.19 Convenience retail with Castletown is focussed on Ethel Terrace. As with many established retail centres such as Ethel Terrace, changing shopping habits have resulted in their decline. Housing market failure and subsequent clearance in the surrounding area has hastened the decline of Ethel Terrace, reducing it’s catchment area, however, a series of other factors have also undermined its vitality, including: x Old buildings in a state of disrepair
10 x Interrupted retail frontage; and x An absence of dedicated car parking.
3.20 PPS6 suggests that in those instances where existing centres are in decline, local planning authorities should examine the scope for consolidating and strengthening these centres by focusing a wider range of services there, facilitating a diversification of uses and improving the environment. The potential to help consolidate the future of Ethel Terrace needs to be examined by the Area Action Plan and is critically linked not only to the environmental quality and diversity of the retail offer but also the future vitality of the housing area upon which it relies for its custom.
Networks and Hierarchies of Centres
3.21 The document advocates that Local Planning Authorities should ensure they have a network of local centres within their jurisdiction; to provide accessible shopping to meet people’s everyday needs. It is also recommended that these centres should be viewed as the focus for investment in local services, such as health centres and community facilities of a small scale.
3.22 Ethel Terrace serves a primarily local market, and any future development in the area should be of an appropriate scale and nature to maintain its function as a local centre. Nearby shopping centres further up the hierarchy such as Sunderland, Durham and Washington are easily accessible via public transport and whilst transport provision in Castletown is generally good, parked cars often block bus stops and restrict the ease of movement on Ethel Street. The provision of dedicated car parking on or near to Ethel Street needs to be considered to improve the area’s accessibility and vitality.
3.23 PPS6 recognises that access to shops and services is often poor in deprived areas and recommends that local authorities work in partnership with the community and retailers to address this by identifying opportunities to rectify the deficiencies in local provision. This is likely to be achieved through the strengthening of existing centres rather than the development of new ones. Proposals within the Area Action Plan will need to clearly define where retail provision should be concentrated to ensure the long term viability of the local centre.
11 A Proactive, Plan-led System
3.24 In order to remain attractive and competitive, it is essential that town centres provide a high quality and safe environment. The visual aspect of Market Street is currently undermined by the age and condition of buildings and a retail frontage interrupted by residential properties.
3.25 PPS6 recommends that policies relating to development for town centre uses should promote high quality and inclusive design. It acknowledges that well designed buildings and public spaces which are fit for purpose, comfortable, safe, attractive and accessible can make a significant contribution to the health, vitality and economic potential of town centres. Consequently, to improve the vitality and viability of Ethel Terrace, a mechanism to improve it’s visual aspect needs to be developed.
Draft Regional Spatial Strategy
3.26 The Draft Regional Spatial Strategy (RSS) highlights that economic growth rates of 2.8% can be achieved in the North East, a figure that is substantially higher than historic trends of 1.8%. If this anticipated increase in economic growth is achieved, it will impact upon the provision of housing in the Region by facilitating in-migration and reversing historical trends of out-migration in the North East. To overcome the current constraints restricting the Region’s growth potential, the RSS advocates the provision of better quality housing to address current stock and tenure imbalances. New housing should be concentrated within the conurbations, as this is where the majority of population growth is expected to be focussed.
3.27 Two challenges facing the Region’s housing stock are identified by the RSS; the collapse of housing markets in towns and former coalfield communities and the shortage of affordable housing in rural areas as a consequence of high demand. The RSS recommends the adoption of an integrated approach to address these issues, by examining the inter-relation between housing, the economy and the environment. It acknowledges that any such policies must ensure that they are not detrimental to any programmes tackling low demand in urban areas.
12 3.28 To prevent an oversupply of properties, the housing allocations specified by the RSS have been based on an economic growth rate of 2.5% (rather than 2.8%), resulting in a population increase of 32,000 driven by net in-migration of 37,000. To restructure the North East’s housing market and facilitate a step change in the Region’s economy, it is proposed that approximately 10,000 dwellings per annum should be built; with the RSS suggesting that almost half of these should be located in Tyne and Wear. In addition, the document also proposes the demolition of 40,000 to 45,000 properties between 2004 and 2021, half of which are again expected to be within Tyne and Wear, with at least 80% of these to be replaced. The document also recommends that there should be an average net increase of 655 dwellings per annum in Sunderland over the period 2004 - 2021.
3.29 With significant regeneration planned for the Sunderland ARC area, it will be important to determine whether any new housing proposed for Castletown will impact upon the City’s housing requirement. It is only envisaged that housing numbers in relation to Sunderland’s allocation in the RSS would be an issue if the number of net dwellings increases.
3.30 New house building adjacent to areas of low demand must demonstrate that it does not adversely impact upon the delivery of any initiatives to restructure the housing market. In addition, the RSS advocates that new house building should be developed in conjunction with the provision of new or upgraded infrastructure and services to ensure that the appropriate environment is created, as this is a major factor in determining where people want to live.
3.31 The document also acknowledges the need to comply with national policies that promote sustainable development measures, such as the reuse of Brownfield land and higher density housing developments. However, the RSS does recognise that high densities are not always appropriate to create the right housing environment. For instance, the Region’s shortage of executive housing is viewed as a constraint to economic growth. Although the RSS does not prescribe what type of housing is to be built in the Region, it does state that there is a need to provide executive housing in Tyne and Wear in both urban and suburban locations where it is currently underrepresented in the dwelling stock profile.
13 3.32 Any proposals for new housing will need to be assessed within the context of regeneration for the City. This will ensure that the correct number and type of housing is provided to create a sustainable community within Castletown. Understanding the future function of the area’s housing market will be key to this. The Area Action Plan should clearly set out the housing aspirations for Castletown in terms of both the type and quality of housing that should be brought forward in any new developments. Additionally, consideration will need to be given to levels of demolition as well as the amount of affordable housing required.
Regional Housing Strategy (Consultation Draft)
3.33 The consultation draft of the Regional Housing Strategy (RHS) is intended to align regional housing policy with a regional vision for economic prosperity. The RHS acknowledges that the retention and attraction of highly skilled workers is vital to the future economic growth of the Region and consequently recognises the need to provide a range of housing for these workers. Much of the North East’s current housing stock was built for the industrial economy of the 19th Century and as a consequence, major restructuring of the housing market is required if the Region is to achieve it’s vision for economic prosperity in the 21st Century.
3.34 This is the challenge that Castletown currently faces. There are several blocks of older, terraced housing within the study area, including Barron Street and Castle Street South, which are in poor condition and no longer meet the needs of the community. In order to revitalise the housing market within Castletown and help to create a sustainable community, properties in the area need renovating to bring them up to modern standards, or replacing with modern properties that better suit current and future residents’ aspirations.
3.35 The principal role of the RHS is to ensure that investment priorities complement Planning Guidance, Regional Spatial Strategy, the Regional Economic Strategy, Transport plans and other key regional strategies and programmes. To achieve this, the Strategy has four broad aims: x Developing the housing stock to meet 21st Century needs and replacing market failure with high quality housing in sustainable and cohesive neighbourhoods
14 x Meeting requirements for new housing that result form household growth and aspirations for better housing x Improving and maintaining existing housing; and x Addressing specific community housing needs including affordability in certain rural locations, the needs of an ageing population and the special needs of other groups.
3.36 All of the above aims are linked to the changing aspirations for housing within the Region and the RHS highlights the need for change to the stock profile of the North East. The Centre for Urban and Regional Studies (CURS) highlighted in its 2002 report North East England: Changing Housing Markets and Regeneration, that 110,000 dwellings within the Region were at risk from low and changing demand and that the majority of these properties were concentrated in the Tees Valley and Tyne and Wear conurbations, as well as the former coalfield communities.
3.37 In addition, the RHS states that Sunderland is one of the major areas in the North East where housing renewal is required. To tackle these problems and reduce out-migration to the surrounding settlements, it is suggested that the removal of unpopular housing in poor condition needs to be undertaken on a large scale, to be replaced by modern, larger homes and amenities to create sustainable communities.
3.38 To support the vision of a dynamic economy and reduce population loss from the Region, the Strategy advocates the adoption of higher house building rates, coupled with an increased rate of clearance of obsolete stock.
Draft Regional Economic Strategy
3.39 The Regional Economic Strategy (RES), produced by One North East, outlines the following vision for the Region:
“The North East will be a region where present and future generations have a high quality of life. It will be a vibrant, self reliant, ambitious and outward looking region featuring a dynamic economy, a healthy environment and a distinctive culture. Everyone will have the opportunity to realise their full potential.”
3.40 The RES is intended to provide a framework to facilitate the sustainable and inclusive economic growth necessary to underpin the achievement of this
15 vision and sets out a series of strategic priorities, listed below, for the period to 2016 to help achieve this: x Leadership x Enterprise and Business Support x Sectoral and Global Networks x Innovation and Creativity x Skills x Economic Inclusion x Infrastructure and Built Environment; and x Image and Cultural Assets.
3.41 Productivity within the North East lags behind the national average and the RES recognises that this must be addressed.
3.42 An area’s ability to attract and retain motivated and highly skilled people is a key determinant of its competitiveness and there is increasing evidence that the quality of life offered in locations is a key driver in attracting and retaining such people. The RES recognises that infrastructure and the built environment can, therefore, impact upon productivity. It acknowledges that successful regions should look to ensure that they are attractive and vibrant places to live and work, with access to high quality environmental and cultural assets.
3.43 The RES recognises that the aspirations and expectations of highly skilled individuals differ from what the Region currently provides, most notably in terms of housing, and that this must be addressed where possible. Whilst the physical state of individual housing units in the North East is relatively good, there is a lack of choice within the housing market. This must be addressed to reflect the need for affordable, family and prestige housing in order to support and promote the growth of the regional economy.
3.44 Furthermore, the RES states that the quality of housing and living environments offered by the North East will be internationally recognised as a competitive advantage for the region by 2016. In order to achieve this, areas currently exhibiting signs of unfitness and disrepair, such as Barron 16 Street and Castle Street South, will require intervention in order to revitalise their housing markets.
3.45 The need for partnership working in facilitating housing market renewal is also recognise by the RES. The Strategy acknowledges that stock transfers, ALMOs and the private sector will be investing large amounts of resource into the restructuring of the housing market, in addition to funding from the North East Housing Board. It highlights the need to ensure that investment from the various streams is aligned to maximise their collective impact.
3.46 Additionally, the enterprise and business support section of the Strategy acknowledges that there is a relatively small pool of potential entrepreneurs in the North East. These existing entrepreneurs often experience difficulties in attracting specialised staff to the Region, which constrains the development of their businesses. The RES suggests that a significant drive is required in the North East to attract and retain entrepreneurial, skilled, innovative and creative people to live, work and establish businesses in the Region. Furthermore, the document states that the provision of appropriate and welcoming places is critical in this respect.
3.47 In addition to the eight strategic priorities stated within the document, the RES also identifies two city regions within the North East that will drive the growth of the regional economy; one of which is the Tyne and Wear City Region. Priorities for action for the Tyne and Wear City Region include the following: x Promote area based regeneration schemes to continue the culture led renaissance of the city region, meet SME growth requirements in key sectors and locations, and sustain and improve our distinctive quality of life x Create sustainable communities through a strategy led approach to revitalising housing markets in the context of sustainable and accelerated economic growth; and x Work with local and pan-regional partners on measures to support the attraction and retention of a skilled workforce.
The Tyne and Wear City Region Development Programme
3.48 The document, produced by the Northern Way Steering Group, highlights a desire to achieve accelerated economic growth within the Tyne and Wear
17 City Region. It identifies three broad areas which must be targeted in order to achieve this: x Business: improved business development and performance is required to enhance the productivity of the City Region and the growth of GVA x Place: success in driving the enterprise agenda is, in part, dependent upon the attractiveness of the City Region to talented people; and x People: there is a need to foster opportunities and remove the burden of worklessness for a greater proportion of the population, to allow them to play a full role in the economic life of Tyne and Wear.
3.49 The Development Programme acknowledges that quality of place can serve as a major asset with regards the competitiveness of a region and recommends the provision of high quality, diverse housing in strategic locations, to create sustainable environments. These strategic locations are defined as core urban areas located around public transport nodes, to ensure that the appropriate infrastructure is in place to support development. NewcastleGateshead and Sunderland are highlighted as the City Region’s core urban areas, as well as Durham (albeit to a lesser extent).
3.50 The document also identifies housing renewal as a key priority with respect to the creation of sustainable communities. The Development Programme recognises that the City Region’s housing offer is vitally important to the competitiveness of Tyne and Wear and states that this is currently a genuine barrier to growth and in-migration. This is largely due to a shortage of mid- market and family housing. The document also states that housing availability is concentrated in areas unattractive to knowledge workers.
3.51 The Development Programme identifies the City of Sunderland as a priority area for significant housing market renewal and recommends that this is undertaken through a combination of demolition and replacement, as well as improvements to the existing housing stock. Clearly, Castletown is one area of Sunderland where restructuring of the existing housing market is required. The aim of this restructuring is to provide a quality housing mix across all tenures and high quality local services.
3.52 It is envisaged that this will help to create fully functioning housing markets and ensure that the priority areas for housing market renewal within the City Region become “first choice” to a wide range of occupiers. The document 18 also states that tackling housing abandonment in Brownfield locations close to employment areas should be a priority to achieve sustainable growth within the City Region.
3.53 Furthermore, the Development Programme also highlights the commitment to excellence in design of new housing developments, to ensure that quality and innovation in design remains a hallmark of the Tyne and Wear City Region’s built environment.
Leading the Way: The TyneWear Economic Strategy
3.54 Produced by the TyneWear Partnership, the Strategy outlines the vision that by 2024, Tyne and Wear will be one of Europe’s fastest growing metropolitan areas, driving the economic and cultural life of the North East. In order to achieve the above vision, the document identifies the following ten key challenges: x Accelerate economic growth x Raise productivity across key sectors x Increase business formation rates x Address skills shortages x Attract and retain creative people x Improve economic activity rates x Improve the quality of our places; and x Improve the transport infrastructure.
3.55 The document highlights the need to improve Tyne and Wear’s transport infrastructure, acknowledging that in order to combat social exclusion, it is vital that people can travel to places of work and learning. As a consequence, it is recommended that all communities are linked to the major centres of employment and services.
3.56 Of the above challenges, the need to improve the quality of the sub-region’s places is the most pertinent to this study. The creation of attractive places where people want to live and work can help Tyne and Wear to attract and retain skilled, creative people, which will impact positively upon levels of
19 business formation, productivity and economic growth within the sub-region. Consequently, the document recommends that the towns and cities of Tyne and Wear endeavour to provide a wide range of leisure, cultural, shopping and learning opportunities, as well as a diverse mix of quality housing.
3.57 In terms of improving the quality of place across the sub-region, the Strategy identifies a need for high quality urban design, recognising that the provision of attractive buildings and open spaces, lively streets and vibrant mixed use areas are vital to successful regeneration.
3.58 Furthermore, the document also identifies four themes that lie at the heart of ‘Leading the Way’. One of the themes is ‘Raising Aspirations’ and the Strategy states that aspirations in Tyne and Wear will be raised through: x The generation of new opportunities x Re-engaging those currently excluded from the economy; and x Promoting the renaissance of deprived neighbourhoods.
3.59 It is anticipated that by 2024, failing housing markets in the area will have been revitalised by addressing issues of low demand and under-investment in private and public housing stock to create places where people want to live.
3.60 With respect to the ‘Changing Places’ theme, the Strategy recommends that economic growth is concentrated in those areas where it can make the most significant impact. It consequently suggests linking employment with the sub- region’s most deprived communities via sustainable transport and ensuring that investment in the area is driven by and contributes towards raising aspirations.
The Sunderland Unitary Development Plan
3.61 The Sunderland Unitary Development Plan (UDP), adopted in 1998 sets out the policies which act as guidelines for the control and promotion of physical development within the City of Sunderland.
3.62 In terms of policies to further the economic development of the City, Policy EC1 states that proposals and initiatives that assist the creation and growth of local businesses will be encouraged by the City Council, as will those 20 proposals and initiatives targeted at areas of economic and social deprivation.
3.63 Consequently, additional commercial development could be promoted within Castletown, an area of social deprivation, with any such development focussed principally upon meeting the needs of local businesses.
3.64 Policy EC2 states that the Council will endeavour to maximise choice with respect to the supply of employment land by identifying a wide range of sites including: x Strategic sites x Sites for office development and business uses (B1) x Sites for industry (B2) and warehousing (B8); and x Sites and premises for small firms, new businesses and community enterprise initiatives.
3.65 The study area is already served by existing provision that caters for business and industrial uses both at Hylton Riverside Business Park and the provision of retail warehouse units located in the east of the study area. Any new development brought forward within Castletown in the near future is likely to be of a smaller scale; aimed primarily at new businesses and community enterprise initiatives.
3.66 The Council will, as stated in Policy EC3, support new and existing economic activity through a range of measures including: x The development and improvement of existing infrastructure x Encouraging the re-use of land and premises to reduce development pressure on undeveloped land; and x The creation of a higher quality environment for industry, business and the workforce.
3.67 Improvements to the area’s housing offer and related public space will serve to improve the environment for workers whilst also helping to make the area a more attractive business location. Similarly, any improvements to the area’s transport infrastructure or public transport provision would not only benefit existing and potential residents but would also serve to Castletown’s attractiveness as a business location. 21 3.68 The main aim of the housing policies outlined within the UDP is to ensure the continuing provision of an adequate supply of good quality, well managed homes which meet the requirements and aspirations of the City’s residents.
3.69 Policy H1 states that new housing will be provided which: x Maximises locational choice subject to environmental and infrastructure constraints, whilst allowing for a variety of needs in appropriate environments x Caters for reduced out-migration and increasing household formation x Assists in the regeneration of existing residential areas; and x Secures the re-use of vacant and derelict land wherever possible.
3.70 Clearly, Policy H1 recognises the need to provide a range of homes in a variety of locations to meet housing needs. It also acknowledges the impact that new housing development can have on existing residential areas by diversifying housing and tenure type to create a more mixed and sustainable community. At present, the housing market within the study area consists principally of terraced housing and the area’s housing mix needs diversifying to retain existing residents and attract new ones into the area to create a fully functioning housing market.
3.71 Policy H2, however, also recognises the importance of the City’s existing housing stock. It highlights that the conservation, maintenance and improvement of existing housing will be a high priority, as will environmental improvements where they are necessary. In addition, the document also states that housing which cannot be improved to provide satisfactory living conditions at a reasonable cost should be cleared.
3.72 The Neighbourhood Renewal Area Assessment of Barron Street and Castle Street South (odd numbers), reviewed towards the end of this Section, estimates that it will cost an average of £29,859 per unit to bring properties in the area up to the fitness standard for human occupation and provide a 30 year life.
3.73 Policy H4 states that new housing development will normally be expected to at least reflect the density of the locality in order to protect and enhance the character of the area. Given that areas of terraced housing such as Barron Street and Castle Street South are failing to meet the needs of residents, 22 resulting in housing market failure, there may be a need to redevelop these areas at lower density to help diversify the housing mix. Furthermore, although Hylton Dene provides open space on the periphery of the study area to the north, there is no open space that is easily accessible to residents. Replacing housing at a lower density would present opportunities to provide incidental open space within Castletown’s residential areas.
3.74 With a prominence of terraced housing within the study area, there will be a need for development of lower density, to facilitate a diversification of the housing mix. This is because the area’s current housing stock is not meeting the needs of existing or potential residents.
3.75 The City Council’s approach to the maintenance and improvement of social housing is outlined in Policy H12, which states that this will be undertaken by: x Restructuring the mix and variety of dwellings to meet local needs x Modernising dwellings in the older estates, with priority given to particular locations and relatively unpopular house types x Bringing long term vacant properties back into use by working with private developers to improve dwellings for sale or rent; and x Undertaking environmental works in association with modernisation.
3.76 Policy H12 clearly recognises that the housing stock in some areas of Sunderland does not meet the needs and aspirations of the community and that there is a need for greater diversity with respect to housing provision in the City, as well as environmental improvements in some areas. The regeneration of Castletown offers an opportunity to address this by developing greater housing choice by restructuring the mix of dwellings, ensuring that changes to the area’s housing mix respond to the needs of the local community.
3.77 In addition, the regeneration of Castletown can also be used to revitalise areas of social housing within the study area, such as the Aviary Estate through the modernisation of social housing stock and by bringing about environmental improvements where this is required.
23 3.78 With respect to private housing, Policy H13 states that the Council will encourage continued investment in the improvement and upgrading of existing stock within the private sector. The problems of unfitness and disrepair will be addressed by: x Encouraging the take up of available grants x Targeting resources to those areas with high concentrations of unfitness and disrepair; and x Encouraging and carrying out environmental works in areas of poor quality.
3.79 Policy H13 recommends that resources will be targeted towards older housing areas which have the poorest environmental quality and that demolition will be used as a last resort to tackle unfitness and disrepair in the housing stock, as well as poor environmental conditions. The study area contains pockets of older housing which suffer from unfitness and disrepair, most notably Barron Street and Castle Street South.
3.80 Policy H16 of the UDP outlines the provision of affordable housing which will be sought by the Council on housing developments. It states that on major new housing sites and restructuring schemes (comprising of 50 dwellings or more) the City Council will negotiate for elements of affordable housing to be provided. This provision will be based upon an assessment of local needs.
3.81 Any restructuring or new build scheme (arising from the clearance of existing housing stock) is likely to comprise of over 50 dwellings and so it can be assumed that an element of affordable housing will be included within the resulting provision,
3.82 Those policies detailed within the UDP which are of relevance to the provision of retail facilities across the City are intended to ensure: x A good shopping service accessible to residents, providing an attractive environment for both shoppers and shopkeepers; and x The continued vitality and viability of existing shopping centres within the City and their contribution to economic regeneration.
3.83 Policy S1 states that the Council will encourage a wide range of attractive, well distributed facilities to ensure that the City’s shopping service meets local shopping and related needs, both now and in the future. This would
24 imply that Ethel Terrace does have a long term future within the City’s retail offer, focused upon meeting the retail needs of a primarily local market.
3.84 To help ensure that local needs are met by Sunderland’s shopping service, the Policy also states that care will be taken to ensure that shopping and related facilities are accessible to all groups by a variety of modes of transport. This is an issue which requires action with respect to Ethel Terrace, where the a lack of dedicated car parking impinges upon the accessibility of the area and adversely affects public transport by blocking bus stops and restricting ease of movement. Clearly, these issues need to be resolved to ensure the future viability and vitality of Market Street and Front Street.
3.85 Although the City Council will support the retention of existing shopping facilities, Policy S3 does state that consideration will be given to the conversion of units to non-retail uses where individual units or a collection of units within a localised area become unviable, providing that: x An acceptable level of local everyday shopping remains; and x The proposed use will not conflict with either established uses in the neighbourhood or other policies of the plan.
3.86 In order to enhance the vitality and viability of existing shopping facilities, Policy S4 states that the City Council will seek to make improvements to their appearance, safety and efficiency by: x Promoting environmental improvements to floorscapes and facades, including appropriate landscaping x Improving traffic management and provision of secure car and cycle parking facilities x Improving facilities for public transport, cyclists and pedestrians including people with disabilities and others with restricted mobility; and x Encouraging uses on redundant upper floors which add to the vitality of the centre.
3.87 The relevant UDP extract of the study area is indicated in Appendix B.
25 The Sunderland Strategy 2004 – 2007
3.88 Produced by the City of Sunderland Local Strategic Partnership and combining the Community Strategy, Neighbourhood Renewal and Sustainable Development, the document outlines the regeneration strategy for the City of Sunderland. The Strategy, which takes account of national and regional policies to address local priorities identifies the following vision as the focus of the City’s development up to 2007:
“Sunderland – a city for everyone to be proud of. Sunderland will be a prosperous city. A desirable, safe and healthy place to live, work, learn and visit, where all people can reach their full potential.”
3.89 The document states that partners aim to achieve the following: x Improve the economic, social and environmental well being of Sunderland’s people x Narrow the gap between the most deprived neighbourhoods and the rest of the City; and x Provide modern services, designed to meet the needs of local people in order to achieve better, seamless, customised and effective services for all in Sunderland.
3.90 In addition, the Strategy also identifies eight Strategic Objectives, which are identified as priority areas for action and intervention over the lifetime of the Sunderland Strategy. The Strategic Objectives include: x Improving the Quality, Choice and Range of Housing x Creating a Prosperous City; and x Reducing Crime and the Fear of Crime.
3.91 The Sunderland Strategy recognises that homes which are of poor quality, inappropriate or undesirable are often the root cause of wide-reaching problems of both a social and physical nature. As a consequence, the document highlights the need to improve the quality, choice and range of housing across the City and sets out the following aims: x Improve the choice of type, location and price of housing to meet 21st Century aspirations and needs. This is to be achieved by addressing areas of low demand in the City, especially where there is an oversupply of a particular house type or tenure and improving the balance of Sunderland’s housing stock with regards type, size and affordability. The Strategy also advocates increasing
26 the proportion of higher value housing in the City, as well as the promotion of mixed developments in sustainable locations x Improve the quality and standards of housing in surroundings that are safe, secure, attractive and sustainable. This is to be achieved by increasing the proportion of private sector homes in ‘decent’ condition, as well as bringing all social housing up to the national decent homes standard. The document also recognises the need to apply high standards of design to new developments and advocates the efficient use of land via the adoption of regional density targets; and x Provide accommodation and support the needs of Sunderland’s large and diverse population, including homeless people and vulnerable groups.
3.92 In addition, the document recognises that improvements to the housing stock of the area will also impact positively upon some of the other Strategic Objectives, most notably Creating a Prosperous City and Reducing Crime and the Fear of Crime. For instance, improvements to the quality and choice of housing in Sunderland will help to improve the prosperity of the City by increasing its attractiveness as a place to work and live. This will consequently reduce housing related migration, whilst the provision of new homes will also help to attract new residents to Sunderland.
3.93 The promotion of ‘Secure by Design’ standards on all new housing developments in the City would help to reduce crime and the fear of crime by ‘designing out crime’ from housing areas. In addition, empty properties can often become the focal points for crime and anti-social behaviour and improvements to the City’s housing stock and the reduction of the number of voids would help to alleviate this problem. Empty properties becoming a focal point for anti-social behaviour is an issue within the Castletown area and this needs to be addressed to help tackle fear of crime in the area as well as anti- social behaviour. The Strategy also recommends that regeneration programmes be coordinated with community safety initiatives.
City of Sunderland Housing Strategy
3.94 The Housing Strategy for the City of Sunderland acknowledges that areas of older housing across Tyne and Wear have been left in serious decline due to industrial restructuring. This is the case in Castletown, where pockets of older, terraced housing is now in poor condition and no longer meets the needs of residents. In such instances, significant regeneration and
27 restructuring of housing stock is required to address changes in population profile and the nature of housing demand.
3.95 The Strategy highlights the importance of housing, which is identified as a Strategic Objective in the Sunderland Strategy, as having a vital contribution in ensuring that Sunderland is a desirable and secure place in which to live. The document states that:
“Our aim is to ensure that housing contributes to the development of a healthy, diverse and sustainable City for current and future citizens.”
3.96 The Strategy outlines three objectives that will help ensure the above aim is realised:
i. To promote quality, choice and sustainability in the City’s housing stock
ii. To support the development of communities through housing’s contribution to social, environmental and economic regeneration; and iii. To promote development of accommodation and support services to enable vulnerable people to live within their community.
3.97 The document states that the first aim will be achieved through developing a sound understanding of the housing market. This will be used to develop a subsequent strategy for regeneration and renewal, as well as a delivery plan, which involve communities in the decision making process. Partnership working with housing providers in the private and social rented sector will be required to promote quality and diversity through new house building, as well as greater flexibility and choice in the provision of social housing.
3.98 To help improve the quality of private rented housing within the City, the Strategy advocates the establishment of a Private Landlords Accreditation Scheme which has now been implemented, in a bid to raise housing standards in the private rented sector. This is of particular relevance to the study area, as levels of unfitness within the housing stock are associated with private rented stock, as highlighted in the Neighbourhood Renewal Assessment of Barron Street and Castle Street South.
28 Interim Strategy for Housing Land
3.99 Produced in 2004, the Interim Strategy for Housing Land outlines Sunderland’s strategy in relation to the amount, type and location of new housing to be developed.
3.100 The Sunderland Strategy seeks to reduce out migration, to halt the decline of Sunderland’s population, which fell by 11,300 from 1991 to 2001. It is envisaged that the City’s population will reach 284,000 by 2016 and continue to grow thereafter.
3.101 In order to meet the requirements of this projected population growth, the Interim Strategy for Housing Land forecasts that 4,900 additional dwellings will be required between 2004 and 2011, 4,000 from 2011 to 2016 rising to 4,900 between 2016 and 2021. If the 1,350 additions to stock built since 2001 (at the time the document was published) are included within this then the City requires 15,100 additional dwellings between 2001 and 2021. This figure is slightly higher than that proposed by the 2005 Draft Regional Spatial Strategy, which estimates that Sunderland will need an additional 11,130 dwellings (net) between 2004 and 2021. However, the difference in the timescales may explain much of the discrepancy.
3.102 It is estimated that approximately 6,700 houses will be cleared in the City by 2016 (5,100 by 2011), with approximately 5,700 of these to be replaced by new houses on the cleared sites. The document states that in order to both increase the City’s housing stock and replace those houses to be cleared 11,800 dwellings need to be built by 2011 and a further 5,600 by 2016.
3.103 Sufficient land is identified by the Strategy to allow for the development of almost 13,000 additional dwellings. This is enough to meet the needs of the City, as identified above, until at least 2016.
3.104 The document outlines 6 Strategy Objectives, which include the following: x To provide sufficient land for new houses in suitable locations to assist in reducing net population loss through out migration x To achieve a better balance of housing types and quality in the City’s housing stock
29 x To support initiatives that address areas which are suffering from low demand for housing; and x To make efficient use of land.
3.105 The population of Sunderland has declined in recent years as discussed previously, and is expected to decline by a further 10,000 by 2011. The document states that this reduction in population is being driven primarily by negative natural change in addition to persistent out migration. It is estimated that 45% of residents who leave Sunderland migrate out of the North East, with the majority doing so for economic reasons. Of the 55% of the City’s residents who move to other parts of the Region, large proportions do so because of a desire to live in a better home or environment.
3.106 Much of Sunderland’s older housing no longer meets the needs of the community and the Strategy highlights the need to improve the quality and balance of housing types within the City’s housing stock as a Strategic Objective. It states that Sunderland’s housing stock displays an imbalance in terms of quality, with 80% of the City’s properties within the lowest Council Tax bands of A/B, compared to regional and national figures of 74% and 46% respectively. The regeneration of Castletown represents an opportunity to diversify the housing offer within Sunderland both with respect to the type and quality of houses and will also help to achieve a better balance.
3.107 In addition, the document identifies the support of initiatives that address low demand for housing as a Strategic Objective and advocates the development of strategies aimed at reducing the likelihood of abandoned housing. This is an issue which the Area Action Plan will need to consider as demand for housing in some areas of Castletown is low because the area’s housing stock does not meet modern needs and aspirations. Also, void properties in the area are a problem, as they have become the focus for anti-social behaviour and so measures to reduce the likelihood of housing being abandoned would be beneficial to the study area.
3.108 The need to ensure that development makes efficient use of land is also highlighted by the Strategy. It states that national density guidance should be observed in new housing developments. PPG3 recommends that new housing should be developed at a density of between 30 and 50 dwellings per hectare and the Interim Strategy for Housing Land states that new 30 housing in the City will typically be developed at 40 dwellings per hectare. However, the document does state that in those instances where sites are cleared, it may be appropriate to replace housing at a lower density to allow for improved provision of public open space and gardens.
3.109 Although Castletown is bounded to the north by Hylton Dene, there is no open space with the study area that is easily accessible to residents. Therefore, the potential benefit to the area of replacing cleared housing at a lower density should be considered by the Area Action Plan as this could represent an opportunity to improve the provision of open space amongst Castletown’s housing. Furthermore, many of the terraced properties in the area do not have gardens and therefore the replacement of cleared housing at a lower density would provide an opportunity to develop new housing with gardens that is more suited to the aspirations of residents.
Safer Sunderland Strategy 2005 – 2008
3.110 Produced by the Safer Sunderland Partnership, the Safer Sunderland Strategy 2005 – 2008 sets out the vision that:
“Sunderland will be a safe city for everyone”
3.111 In formulating the Strategy, the Partnership undertook a detailed review of crime, disorder and drugs issues in the city, underpinned by extensive public consultation. The key aim of the Strategy “to create a city which is, and is seen to be, safer by reducing crime, anti-social behaviour and the misuse of drugs” was developed as a result of this process, as was a set of eight priorities which include the following: x Focus upon priority areas / locations; and x Achieve a sustainable reduction in anti-social behaviour across the city.
3.112 The review also included a Fear of Crime Survey, undertaken in 2004. This revealed that the top five priorities to be addressed, as identified by residents, to make them feel safer were: x Reduce access to alcohol for underage children / young people x Have more Police Officers based in the community x Stop people drinking in public / enforce alcohol restrictions in public places 31 x Improve the provision of facilities / activities for young people; and x Introduce high profile Police Community Support Officers / Neighbourhood Wardens.
Priority 3: Tackling Locations – Priority Areas
3.113 The objective of Priority 3 is to reduce the gap between those communities within Sunderland experiencing the worst crime, disorder and drugs problems, and the City average by 2007/8. Although not identified as a Priority Area, the document does acknowledge that Castletown is one of the City’s four wards where house burglary is perceived to be a ‘serious problem.’ Recorded levels of house burglary within the ward are also above the city average, as are the crime rates for the following offences: x Disorder x Youth disorder x Domestic violence; and x Fraud / forgery.
3.114 Furthermore, the wider North Sunderland area which contains Castletown is regarded as particularly problematic with respect to the following: x Vehicle related fires x ‘Young people hanging around’; and x vandalism and damage to property.
3.115 The Government’s Neighbourhood Renewal Strategy recognises that anti- social behaviour, crime and drugs are at the top of any list of residents’ concerns in deprived areas and that these concerns must be addressed to allow communities to thrive. The Safer Sunderland Strategy acknowledges the benefits of targeting action specifically at those neighbourhoods experiencing the worst crime and drugs problems, with a comprehensive package of crime reduction measures. In addition, the document recognises that whilst the Partnership has not previously had a strong ‘area-based’ approach, significant achievements have arisen in those instances where such an approach has been adopted.
32 3.116 The document also outlines a ‘toolkit’ for tackling the key issue of Priority Areas. The key recommendations are outlined below: x Implement ‘Section 17’ in relation to all new buildings and car park developments being built to ‘Secured by Design’ and ‘Safer Parking Award’ status in Council developments and encourage this in non-council developments x Secure a policy within the LDF that supports the ‘Designing Out of Crime’ x Secure void properties and bring them back into use, to help reduce levels of burglary, fear of crime and anti-social behaviour; and x Increase the visibility of police and other ‘street’ based staff in identified priority areas.
Priority 4: Tackling Anti-Social Behaviour
3.117 The objective of this priority is to achieve a sustainable reduction in anti- social behaviour in Sunderland. Anti-social behaviour is a problem in Castletown, with vacant properties in the area and the allotments becoming a focus for such activity and an above average level of instances of disorder and youth disorder. In addition, Hylton Dene is also a focus for anti-social behaviour within the area.
3.118 Consequently, measures to address this are required if the housing market in the study area is to be revitalised as such behaviour can, if left unchecked, lead to neighbourhood decline, an out migration of population, further void properties and a breakdown in community cohesion. Furthermore, anti-social behaviour can contribute to high levels of fear of crime, which has a significant impact upon quality of life, affecting the most vulnerable members of society.
3.119 The 2004 Fear of Crime Survey revealed that tackling street crime and underage drinking were high priorities, whilst 52% of residents perceived ‘young people hanging around’ to be a serious problem in Sunderland and the North of the City particularly. However, youth disorder has actually fallen by 28% in the last three years.
3.120 The Council and partners are working to address these problems and perceptions, through a series of initiatives. In 2004, the Council formed an Anti-Social Behaviour Unit, which deals with anti-social behaviour in the
33 private and owner-occupied sectors and is targeting the most problematic families whose persistent anti-social behaviour undermines communities.
3.121 Operation Gryphon is a Police led, multi-agency initiative, which addresses street disorder by changing behaviour. The Police are also working with Trading Standards to stop retailers form selling alcohol to under-age young people by undertaking ‘alcohol sweeps’ and through awareness raising work to remind them of their responsibilities.
3.122 The Strategy outlines a ‘toolkit’ to help address problems of anti-social behaviour in the city, which includes the following: x Improve feelings of safety on public transport / pedestrian routes to and from public transport x Use of a Landlords’ Forum and voluntary accreditation scheme; and x Design out anti-social behaviour through the design of play facilities and community sports areas etc.
Future City Future Lives: Sustainable Development Strategy
3.123 Produced by the City of Sunderland Partnership, the document sets out a strategy for Sunderland to help develop a sustainable city for all residents. The Strategy identifies eight sustainability themes which are to be pursued. These themes include: x Participation x Health, Well-Being and Community Safety; and x Transport.
3.124 In terms of the Participation theme, the document acknowledges the importance of understanding the sustainability priorities of residents and empowering all sections of the community to participate in decision making which affects them and their home area. It acknowledges that participation and consultation of residents should be used to encourage this. Resident consultation will be important in determining an Area Action Plan for Castletown, as it will help to outline the views and priorities of those people living in the area.
34 3.125 With respect to the theme of Health, Well-Being and Community Safety, the Strategy states that general health is related to a sense of well-being and quality of life which is adversely affected by high levels of crime and anti- social behaviour. It recognises that there is a need to reduce crime and the fear of crime within the City and proposes to expand upon existing initiatives to increase CCTV coverage and neighbourhood watch initiatives and improve the safety of footpaths, as well as street lighting. In addition, the Strategy also highlights the need to reduce the potential for crime and thus the fear of crime through the design of existing and new development.
3.126 The Sunderland Strategy highlights the importance of promoting the principles of Designing out Crime and these should be adhered to in any new developments in the study area and introduced to existing areas where possible to help to ameliorate the existing problems of anti-social behaviour within the area.
3.127 The Strategy also highlights the need to increase the amount of good quality, sustainable, affordable housing within Sunderland, recommending that any new housing development should also be located near to community facilities to help create sustainable communities.
3.128 In relation to the Strategy’s Transport theme, the key objective is to increase accessibility for residents between their homes and work or school, as well as retail and leisure facilities. This is to be achieved by increasing the number of residents using footpaths, cycle networks and reliable public transport. The ease of movement of public transport in Ethel Terrace is currently restricted by parked cars which adversely affect access to the main retail area of Castletown.
Neighbourhood Renewal Assessment: Barron Street South and Castle Street South
3.129 The study area is made up of 42 pre-1919 terraced properties. Houses in the area have no front garden space and small yards to the rear. The Neighbourhood Renewal Assessment (NRA) undertaken in Castletown was prompted by the findings of the 2002 Private Sector Housing Condition Survey, which highlighted the study area as being in an advanced state of decline and exhibiting a high degree of housing stress. 35 3.130 The document also states that the study area exhibits symptoms associated with run down housing, including; disrepair and unfitness, low demand, high vacancy rates, a poor quality environment (including abandoned, boarded up properties, graffiti and fly-tipping), as well as crime and disorder.
3.131 The NRA document acknowledges that terraced properties adjacent to Barron Street South and Castle Street South also exhibit similar problems but states that the study area requires the most urgent action as it is in the most advanced stage of decline and physical housing stress.
3.132 With respect to the study area’s housing market profile; vacancy rates are high, with 47.6% of properties unoccupied. Vacant dwellings, the document highlights, are a problem because they often become the focus for criminal activity, as well as anti-social behaviour and vandalism.
3.133 Also, the study area contains a disproportionately high number of private rented properties (73.8%) in comparison with other areas of the City. Work undertaken as part of the NRA process estimates that 16 of the study area’s 42 dwellings are unfit for human habitation, whilst 5 of these are occupied. Only 4 properties are considered to be in good condition. Unfitness appears to be strongly associated with private rented properties, with 10 of the area’s 31 private rented dwellings considered unfit for human habitation.
3.134 Barron Street South and Castle Street South represent some of the City’s poorest quality housing and the document states that the spiral of decline perceived by residents cannot be arrested or reversed without radical intervention. Opinion amongst residents is strongly, although not universally, in favour of clearance to address the problems of vacant properties and private renting.
3.135 The option appraisal undertaken as part of the NRA process suggests that only two options are viable for the future of the study area: x Wholesale clearance; and x Selective clearance with the retention and improvement of the remaining dwelling stock.
3.136 Wholesale clearance of the study area is predicted to have a high positive impact within the area and would provide opportunities to replace current
36 housing with new modern housing if desired. However, this option represents a high cost approach and is anticipated to meet at least some opposition from residents.
3.137 The document suggests that a mixed approach of selective clearance coupled with renovation also carries some risk as levels of vacancy in the study area currently show no signs of improving. Consequently, even if retained stock is renovated to a long life standard, which the document estimates would cost an average of £29,859 per property, there can be no guarantee that occupancy levels will improve. The NRA document therefore proposes a refined version of this approach comprising of selective clearance coupled with work to secure a short life for retained dwellings, with 10 years suggested as an arbitrary time scale. This would allow the situation to be monitored before further investment decisions are made.
37 PART B: BASELINE ASSESSMENT
38 4.0 URBAN CHARACTER ASSESSMENT
Introduction
4.1 Urban Design is the art of creating places that have a special quality, both in the new and in the regeneration of the old. The commitment to creating quality places, after 50 years of poor development and redevelopment, is now embedded in national planning policy and design guidance.
4.2 This section outlines the strategic design context at the national, regional and local level as well as local studies, plans and assessments carried out.
National Policy
PPS 1: Creating Sustainable Communities
4.3 This guidance links design to sustainable development. It ensures that:
‘Good design ensures attractive, usable, durable and adaptable places and is a key element in achieving sustainable development. Good design is indivisible from good planning.’ (para 1.27)
‘Planning policies should promote high-quality inclusive design in the layout of new developments and individual buildings in terms of function and impact, not just for the short term but over the lifetime of the development. Design which fails to take the opportunities available for improving the character and quality of an area should not be accepted’ (key principle (iv) para 13)
‘good design should contribute positively to making places better for people’ (para 34)
‘high quality and inclusive design should be the aim of all those involved in the development process’ (para 35)
‘Planning authorities should prepare robust policies on design and access…based on stated objectives for the future of the ara and an understanding and evaluation of its present defining characteristics’ (para 36)
‘Planning authorities should have regard to good practice set out in By Design - Urban design in the planning system: towards better practice’. (ODPM, CABE 2000) (para 37)
39 PPG 3 Housing
4.4 Under ‘designing for quality’ this guidance emphasises the importance of good design and layout of new development. Plan policies and supplementary planning guidance should reflect a shared vision with local communities of the type of residential environments they wish. Designs and layouts should make more efficient use of land without compromising the quality of the environment, and should have regard not just to neighbouring buildings but local townscape and landscape.
‘New housing and residential environments should be well designed and should make a significant contribution to promoting urban renaissance and improving the quality of life’ (para 1)
‘Local planning authorities (LPAs)…should promote good design in new housing developments in order to create attractive, high-quality living environments in which people will choose to live’ (para 2)
‘Policies should ‘focus on the quality of places and living environments…(and) avoid flexible planning standards’ (para 63)
‘LPAs should reject poor design particularly where their decisions are supported by clear plan policies and adopted SPG,’ Applicants…should be able to demonstrate how they have taken account of the need for good layout and design’ (para 63)
PPS6: Planning for Town Centres
4.5 The governments key objective for town centres is to promote their vitality and viability by: x Planning for the growth and development of existing centres; and x Promoting and enhancing existing centres…encouraging a wide range of services in a good environment, accessible to all.
‘The Government’s wider policy objectives are also relevant…to promote high quality and inclusive design, improve the quality of the public realm and open spaces, protect and enhance the architectural and historic heritage of centres, provide a sense of place and focus for the community and for civic activity and ensure that town centres provide an attractive, accessible and safe environment for businesses, shoppers and residents.’ (para 1.5)
40 PPS12: Local Development Frameworks
4.6 Local Development Frameworks are intended to streamline the local planning process and promote a proactive, positive approach to managing development. The key aims are: x Flexibility x Strengthening community and stakeholder involvement x Sustainability; and x Soundness.
‘In preparing local development documents [LDDs] LPAs must include policies on design and access… PPS1 makes clear that good design…is crucial to the delivery of sustainable development, not separate from it.’ (para 1.12)
‘Well designed development responds well to the local physical, social and economic context, being safe, clean, attractive and accessible for all users. LDDs should therefore include policies that set out strategic design and access objectives in line with PPS1 and relevant good practice…’(para 1.13)
‘LDDs relating to specific areas could usefully inform the implementation of strategic design policies by including design policies that relate to local conditions and objectives.’ (para 1.14)
PPG13: Transport
4.7 The objectives of this guidance are to integrate planning and transport at all levels to: x Promote more sustainable transport choices x Promote accessibility to jobs, shopping, leisure facilities and services by public transport, walking an cycling; and x Reduce the need to travel, especially by car.
‘LPAs should actively manage the pattern of urban growth to make the fullest use of public transport…and seek by the design and layout of developments and areas, to secure community safety and road safety.’ (para 6)
‘When thinking about new development, and in adapting existing development, the needs and safety of all in the community should be considered from the outset… taking account of the importance of good design.’ (para 29)
41 PPG17: Sport, Open Space and Recreation
4.8 The government’s main planning objectives for sport and recreation area to: x Promote more sustainable patterns of development by creating and maintaining networks of recreational facilities and open spaces, particularly within urban areas x Promote social inclusion, health and well being by ensuring that everyone has easy access to good quality sport and recreational facilities and open space; and x Support an urban renaissance, by making our towns and cities more attractive places in which people will choose to live.
‘Local networks of high quality and well managed open space help create urban environments that are attractive, clean and safe and can play a major part in improving people’s sense of well being.’ (page 2)
‘LPAs should…audit open space facilities…Audits of quality will be particularly important as they will allow local authorities to identify potential for increased use through better design, management and maintenance.’ (page 3)
‘New open spaces should improve the quality of the public realm through good design.’ (page 20)
Urban White Paper
4.9 The White Paper is the Government’s major statement on ensuring the vitality of towns and cities, following the report of the Urban Task Force – Towards an Urban Renaissance, 1999. It aims, amongst other things, to encourage people to remain and move back into urban areas, particularly the centre of our major cities and conurbations, by making them places which offer a good quality of life. This includes, amongst other things, the need for an attractive urban environment.
4.10 The government’s new vision of urban living includes people living in attractive, well kept towns and cities which uses space well, and good design and planning which makes it practical to live in amore environmentally sustainable way, with less noise, pollution and traffic congestion. This agenda takes the very broadest view of design as being much more than things look, but being integral to sustainability, social cohesiveness and sound local economies.
42 Other National Guidance and Initiatives
4.11 The Government through the Urban Renaissance agenda has published a series of documents of relevance to the regeneration of Castletown.
By Design: Urban Design in the Planning System
4.12 ‘By Design’ published by the DETR in 2000, outlined 7 key objectives of urban design. These are as follows: x CHARACTER a place with identity x CONTINUITY AND ENCLOSURE a place where public and private spaces are clearly distinguished x QUALITY OF THE PUBLIC REALM a place with attractive and successful outdoor areas x EASE OF MOVEMENT a place that is easy to get to and move through x LEGIBILITY a place that has a clear image and is easy to understand x ADAPTABILITY a place that can change easily; and x DIVERSITY a place with variety and choice.
Better Places to Live: A Companion Guide to PPG 3
4.13 The purpose of this guide is to help deliver the change as identified in PPG 3 and should be read alongside that particular note. It is a guide to better practice and aims to prompt greater attention to the principles of good design, not constrain.
4.14 Its focus is the urban design principles and approaches which underpin successful housing, not architectural treatment. Only by giving attention to these principles can the quality of housing layout and design be raised.
Commission for Architecture and the Built Environment (CABE)
4.15 CABE is the governmental champion for architecture and urban design in England. Their function is to offer help and advice, promote high standards in the design of buildings and the spaces in between. Their aim is to provide: x A regional committee to promote good architecture and urban design at a local level 43 x Research to underpin their messages on design and work to improve the quality x A design review committee to advise local planning authorities and others on the design of selected developments in England x A project enabling panel to offer advise to clients who aspire to quality but would welcome some assistance in achieving it; and x A range of design related education available both to professionals and the wider public.
4.16 Of particular interest CABE’s design research document ‘Paving the way, how to achieve clean, safe and attractive streets’ 2002, draws attention to an important and basic aspect of design – the street, how it works and how we use it. It states the following main indicators of quality, which are the test of successful streetscape: x Comfortable and safe for pedestrians and the disabled x A street designed to accommodate all sort of functions, not dominated by any one x Visually simple, and free of clutter. Regardless of whether a street is a straightforward or complex space, what matters is the simplicity and clarity of its paving, street furniture, lighting and landscaping x Well cared for and where utilities or ‘extraneous’ advertising are subordinate to all other street functions x Sympathetic to local character and activity context, in design and detail; and x Making appropriate ordered provision fro access, deliveries and storage of vehicles.
4.17 The document emphasises the conflict between attractive streetscape and highway design based on the application of rigid and standardised geometry and dimensions. New approaches recommended include a more joined up approach to management of the public realm and community commitment to street improvement projects.
Regional Policy
The Northern Way
4.18 In seeking to meet the challenge set by the Deputy Prime Minister the three northern Regional Development Agencies set themselves an ambitious vision: 44 ‘Together, we will establish the North of England as an area of exceptional opportunity combining a world-class economy with a superb quality of life’.
4.19 In order to bridge the gap identified with the rest of the UK the area must: x Think long term and sustainably with the emphasis on quality and integration of economic, social and environmental goals x Work together very differently x Define the main investment priorities to enable economic growth and links with global markets, better transport within and between each city region; and x Focus on the growth of the north’s eight city regions which are the building blocks of the northern economy.
4.20 In order to accelerate the growth of the city regions there is a need to concentrate on key policy priorities including: x We must bring more people into work x Regions prosper when they are well connected x We must invest in creating better integrated public transport services within and between our city regions; and x We must take a bolder approach to creating truly sustainable communities. We must provide real housing choices for all households.
Regional Planning Guidance for the North East to 2106 (RPG1)
4.21 Design is considered under ‘Diversity and Distinctiveness’. It is an essential element in regeneration and can result in a reduction in energy consumption. Authorities are encouraged to prepare design guidance to provide development control advice. ENV22 – Built Development states that development plans and other strategies should: x Seek to ensure a high standard of built development and design x Seek to promote high quality contemporary architecture or local styles, where appropriate x Encourage recycling and re-use of traditional materials; and x Seek to maximise energy efficiency.
45 Regional Cultural Strategy
4.22 The strategy has wide reaching relevance to economic, social, sustainability and environmental policy, including Regional Planning Guidance and the Regional Economic Strategy.
4.23 It states that it will respond to and inform the government’s cross-cutting agendas including: x Neighbourhood Renewal x Urban Regeneration; and x Sustainability/Environmental policies.
Regional Economic Strategy
4.24 The 2002 update, (Realising the Renaissance of our Rural and Urban Communities), of the North East Economic Development Strategy states:
‘High quality design, thoughtful planning and the creation of a distinctive built environment are at the heart of the Region’s urban renaissance. Where a sense of place exists, it helps people feel proud of their community. One NorthEast is working with CABE, the four Sub- Regional Partnerships and design communities throughout the Region to promote high quality architecture and urban design positioning the North East as a vibrant and forward looking, design led Region.’
Sunderland Unitary Development Plan
4.25 Within the current Development Plan there are a number of policies relevant to Castletown under the auspices of design, regeneration, recreation and open space, some of the most relevant of which are listed below: x Shopping: Development Control – appropriate scale, design and materials used for redesigned shopfronts including security shutters and roller grilles (S8 – 10) x Leisure: Control Standards, Amenity Open Space – the council will seek appropriate levels of public parks and amenity space to the public (L5) x Leisure: Control Standards,Children’s Playspace – the council will seek to develop a hierarchy of playspace provision for children (L6) x Leisure: Control Standards, Allotments – the council will encourage and enhance the provision of allotments of a high standard (L8 - 9) x Leisure: Country, Coast and River, Countryside Recreation – activities and access to them will be improved and promoted (L10) 46 x Built Environment: Policies – the council will implement a programme of environmental improvements with priority given to sites within and adjacent to older housing areas, areas with a concentration of derelict and poor quality buildings and entry points (B1) x Built Environment: Policies – the scale, massing, layout or setting of new developments should respect and enhance the best qualities of nearby properties and the locality (B2) x Built Environment: Art – the council will undertake and encourage the provision of works of art as part of major new or enhanced developments (B20) x Countryside and Nature Conservation: Landscape and Woodland, Views of the City - the council will protect and enhance important public views in particular as perceived from transport corridors and well used outdoor venues (CN13) x Countryside and Nature Conservation: Landscape and Woodland, Views of the City - landscaping schemes and new developments prominent from the main transport routes must be located and designed to take into account their important positioning enhancing the image of the city (CN14) x Countryside and Nature Conservation: Landscape and Woodland, Woodlands and Forestry - the council will seek to retain and enhance existing woodlands and tree belts (CN16) x Countryside and Nature Conservation: Landscape and Woodland, Woodlands and Forestry - the council will encourage the retention of trees which make a valuable contribution to the character of an area (CN 17) x Countryside and Nature Conservation: Nature Conservation - development which will adversely affect a designated or proposed Local Nature Reserve or Site of Nature Conservation Importance will not normally be permitted (CN21); and x Countryside and Nature Conservation: Nature Conservation, Wildlife Corridors – within wildlife corridors measures to conserve and improve the environment will be encouraged, development which would adversely affect the continuity of the corridor will normally be refused and where development is acceptable appropriate habitat creation measures will be required (CN23).
4.26 Sunderland North Area Proposal policies relevant to the study area include the following: x Existing Mixed Use Sites: NA4.3 - East Castletown will be retained and improved for a mixture of commercial and industrial uses x Private Housing: NA10.7/8 – the council will seek to improve the environment in Barron Street/East View and Elizabeth Street/Stanley Street x Amenity Open Space: NA22.4 – existing amenity open space at Hylton Dene will be upgraded
47 x Allotments and Leisure Gardens: NA24.6 – the existing allotment sites at East View South/Park Street will be upgraded x Personal Mobility, Multi-User Routes: NA35.2/3 – the routes through Hylton Dene and alongside the River Wear are identified as Strategic Multi-User routes protected from development; and x Personal Mobility, Provision for Cyclists: NA38.1 – a well designed cycle route with connections to adjacent uses and multi-user routes will be provided adjacent to Wessington Way.
4.27 The relevant UDP extract of the study area is indicated in Appendix B.
Sunderland Unitary Development Plan: Draft SPG 3 – Design
4.28 In order to supplement the requirements within the UDP, Sunderland City Council issued a Draft SPG on Design in relation to Housing schemes in 2002. Its main aim was to “provide advice and guidance on design principles which should be reflected in proposed development submitted for consideration by the City Council”.
4.29 The guide identifies both the process which requires to be undertaken by applicants as well as elements of work required in order to prepare a Design Statement. The guide also includes quantitative standards as well as appraised examples within the city boundary.
Friends of Hylton Dene
4.30 Established in 1999 the Friends of Hylton Dene group was formed by residents of the estates around Hylton Dene with the aim of co-operating with Sunderland City Council, Durham Wildlife Trust, English Heritage and other agencies to actively involve the local community in the development and upkeep of Hylton Dene and Castle.
4.31 Hylton Dene had, for many years, deteriorated into an unauthorised tipping site and vandalised to an extent that it became a no-go area for the majority of the community.
4.32 The aims and objectives of the Friends' group are as follows: x to help in the development and protection of Hylton Dene and ensure that the facilities are meeting the needs of local residents and whoever uses the park
48 x to ensure that the historical usage, wildlife and the conservation of Hylton Dene is maintained and improved; and x to assist in fund-raising activities for the betterment of Hylton Dene, Castle and Chapel.
4.33 Work undertaken so far has included a Feasibility Study (2005) which identified a funding strategy for improvements in the Dene as well as the Castle and Chapel. In addition a Conservation Study was undertaken (2005) which identified possible development of buildings, marketing opportunities and comparisons with other sites. A number of options have been identified with cost implications and identified opportunities. Consultation with English Heritage, Sunderland City Council and residents is now to take place.
4.34 Durham Wildlife Trust fund a full time on site officer working from various portacabins adjacent to the castle where he deals with various local schools, colleges and other interested groups.
4.35 Interpretative signs of the castle and chapel are now in place and where part funded by the 2003 Local Heritage Initiative. In addition the castle and chapel where part of the Heritage Open Days (HOD) event, which was organised nationally by The Civic Trust and English Heritage for 8th to 11th September. The Castle itself was opened 10th and 11th showing displays detailing the history of the castle together with the Hylton family connection and later developments. Also showed were illustrations of the heraldry and an indication of the vision for future developments.
Summary
4.36 The processes of urban design involve everyone. That is the authorities, developers, businesses, stakeholders and local communities. As urban design becomes an integral part of local planning and regeneration policy a general understanding of the key principles and how they apply and can apply to any scheme becomes paramount.
4.37 It is important to realise that one size does not fit all and that solutions and new ideas will be area/neighbourhood/street based in order to endeavour community support. The task is to facilitate the interweaving of solutions on each streets requirements, actions, projects etc into a credible whole which touches each of the key objectives. 49 General area overview
Historical Growth
4.38 First settled around 5,000 years ago, the three villages of South Wearmouth, Bishopwearmouth and Monkwearmouth grew through Roman and Saxon activity, particularly religious, to an amalgamated town which grew rapidly in the Victorian age following the discovery of coal and the industrial emergence of the river as a centre of engineering and shipbuilding.
4.39 In the mid 1800’s Sunderland’s built up edge had reached/created Southwick and Pallion with agricultural land further west with scattered Manor Houses and agricultural cottages. Within the study area only farm clusters at Dene House now remain with those at Park House (Casteltown Primary School car park) now demolished. North of the dene stood Hylton Castle and Chapel as they had since 1400 AD, albeit now in poor shape. Recognisable lanes on maps of the age include Barons Quay Lane (now Road) running from the ferry crossing on the river north towards the castle and what is now Grange Road/Ethel Terrace/Dene Road.
FIGURE 1: 1862 HISTORICAL MAP (INDICATING THE STUDY AREA)
4.40 The growth of Castletown is very much linked to the opening of the Hylton (Castletown) Colliery in 1900 and its subsequent employment of upwards of 1800 men at its peak in the 1930’s. The map of 1951 indicates dense terraced housing both north of Ethel Terrace and along Castle, Barron and Park Street. Further north along North View the 6 villas are prominent as is the first parts of Fawcett and Joyce Terrace together with West View off
50 Grange Road. In the following 20 years land to the north, west and south west was to be rapidly built upon by the council offering a variety of semi detached family houses and elderly persons bungalows.
FIGURE 2: 1951 HISTORICAL COLLIERY MAP (INDICATING THE STUDY AREA)
4.41 The demolition of those first terraces along Castle, Barron and Park Street North in the late 1960’s created the space for the building of the Aviary Estate in the Radburn style which had started to emerge across many of England’s New Towns at that time, such as Newton Aycliffe. Other than the Jennifer Avenue scheme off Oswald Terrace South in the 1970’s, new housing development has since been limited to small infill sites such as those on Oswald Terrace, Dene Road and North View for example.
4.42 In addition, in the 1980’s and 90’s 2no large nursing homes were built together with retail units on East View and Castletown Primary School.
4.43 There are no listed buildings within the study area. An indication of the historical growth within the study area is shown on drawing no 20121/003 in Appendix C.
Urban Grain and Land Use
4.44 The identification of the study areas urban grain provides us with an amount of interesting information. Firstly by identifying the various built up blocks of 51 development we can clearly see the pattern of growth of the area and the various distinct housing areas. For example the image below clearly differentiates between the terraces, the Aviary Estate and the large areas of semi detached properties. In addition it also identifies the areas of public space including the main routes, passageways, rear alleys and recreational areas.
4.45 In doing so we can therefore identify some of the positives and negatives of the urban grain across the study area as follows: x Strong road network x High permeability around the terraced streets and amongst the Aviary Estate x Strongly defined boundary to the north and west x Neighbourhood/community safety associated with cul de sacs and larger residential blocks x Internal focus upon Ethel Terrace x Impermeable nature of the later council developments to the west and north x Social and safety issues with regards high levels of permeability x Narrow linkages between main routes and into/out off Hylton Dene x Lack of character along Ethel Terrace and Grange Road; and x Lack of residential frontages along eastern part of Ethel Terrace.
52
FIGURE 3: EXISTING CASTLETOWN URBAN GRAIN
4.46 The predominant land use is residential, with recreational open space, educational/community and retail making up the rest of the study area.
4.47 Recreational open space is dominated by Hylton Dene to the north with small areas of public open space alongside roads and within housing areas. The two allotments to the south east cover a large area and also screen adjacent housing from the A182. The main educational establishment is Castletown Primary School in the south western corner of the study area which caters for upwards of 400 pupils and includes areas of hard and grass playing fields. Community buildings include the community centre on Grange Road, the scout hut off Castle View, the working mens club and Methodist Chapel on Castle View.
4.48 The retail offer is focussed on Ethel Terrace with approx 16 units including a post office and smpall Co-op food store. Castle View includes a general store, snooker club and gym, working mens club and a kitchen shop which occupies an old Victorian Public House.
4.49 The Land Use areas are indicated on drawing no 20121/004 in Appendix C.
53 Connections and Safety
4.50 The urban grain plan presented previously clearly identifies the variety of connections which exist across the area and how the level changes dependent on the style of housing. The study area consists of a large number of through and connecting routes which provide a high level of direct access by foot, cycle and transport into all areas. In certain areas such as the terraced streets and the Aviary estate this is multiplied via rear alleys and an integral car free path system.
4.51 In terms of safety, where there is an increase in possible routes, particularly for pedestrians, this has to be accompanied by appropriate levels of street and path lighting. In the areas mentioned above this is not the case despite the fact that here and across the whole study area, street lighting has been recently upgraded.
4.52 It is considered that the perception of fear when walking the streets and paths is considerably higher than actual levels of personal crime committed on the streets of Castletown, with many instances connected to youths gathering at street corners, outside particular shops and in open space areas. This is particularly prevalent behind the Co-op on Ethel Terrace, in and around the demolished streets in the south eastern corner, the greens within then Aviary estate and along the paths in Hylton Dene. A pole mounted CCTV camera is located within the public arena opposite the Co-op with views along Ethel Terrace, parts of Elizabeth Street and behind the Betting shop.
4.53 The Connections within the area are indicated on drawing no 20121/005 in Appendix C.
Landscape and Open Space
4.54 The study area is protected on two flanks by strong landscape elements in the shape of the heavily wooded Hylton Dene to the immediate north and a maturing vegetated screen alongside Wessington Way (A182). Within the study area there is very little of interest other than the street trees and ‘village greens’ in the north western corner.
54 4.55 The management and maintenance of the Dene has to be undertaken bearing in mind a number of important criteria. Ecology, history, landscape, bio-diversity, public access, health and safety and public safety. It is a mix which is sometimes contradictory with the pursuit of ecological and landscape aims sometimes contrary to public safety.
4.56 The landscape screen running along the southern boundary with Wessington Way is increasingly important in terms of reducing noise, traffic pollution and visual impact, as well as providing a pleasing backdrop to properties and other areas alomng the southern boundary.
4.57 The Aviary estate has, in total, a large area of mown public space which is an inherent part of the character of the ‘radburn’ style layout. Today the areas are dumped on, used as dog toilets, cut across and supposedly not used for ball games. As areas for public and community inter-action they have very little to offer and with no tree cover does not aid in the creation of a positive character for the area.
4.58 The Landscape and Open Space within the area is indicated on drawing no 20121/006 in Appendix C.
Views and Landmarks
4.59 The study area sits on a headland between the deepening Hylton Dene valley moving eastwards towards the River Wear and the tidal River Wear valley just to the south. Levels across the built up areas vary from around 29m AOD to 24m AOD at the eastern and southern fringes. The northern edge of the built up area drops from around 27m AOD to 22 – 20m AOD at the bottom of the dene.
4.60 A combination of the landform and strong structural perimeter landscaping does not allow for spectacular views of either the River Wear valley of Hylton Castle. Glimpsed views of the castle are however possible from those properties and open areas set back from the dene. Locally the most important views are towards and along Grange Road and Ethel Terrace, along Grange Road and down Hylton Dene Road towards the burn crossing and up towards the castle area. In conclusion the focus of Castletown is very much internal, particularly around the central Ethel Terrace area.
55 4.61 With an area dominated by 2 storey semi and terraced housing and with very few higher or outstanding buildings or areas, there is very little which could be considered as a landmark within the area. The institutional buildings at the eastern end of Castle View create as a group a visual and social landmark important in portraying the history of Castletown. The adjacent Kwik Save and Storeys furniture store are significant landmarks to the east of the study area particularly as they are the first and last building viewed when accessing Castletown off the A182 junction.
4.62 Ethel Terrace focus as a community landmark within Castletown has diminished over the last 20 years with only the old Methodist Chapel remaining as a landmark feature of note.
4.63 Particular impressive detailing and built elements within the study area include the original basket weave curtilage walls and fascia/barge board details to many of the semi detached properties to the north; the garden hedgerows, village greens and tree lined roads with grass verges again in the north of the area; and the large Victorian villas along North View.
4.64 The Landmarks and Views within the area are indicated on drawing no 20121/007 in Appendix C.
Character Areas
4.65 Through the detailed analysis presented above and as indicated on the drawings in Appendix C, we have identified 8 character areas which are as follows and as shown on drawing no 20121/008 in Appendix C: x Hylton Dene – Significant environmental benefit linking to historical and social landmarks. Issues with regards Anti Social Behaviour and maintenance x Castle View/Grange Road – Majority of housing is former council stock. Area includes the major community and educational facilities. Issues with regards speeding, narrow pedestrian cut throughs and integration of new development x Shepherd Terrace – Area of Sunderland cottages hidden on all sides by adjacent land uses. Narrow roads though some streets have small front cartilages. Issues with regards litter, ASB and lack of door step open space x Ethel Terrace – Commercial heart of Castletown now looking the worse for wear though remains as the largest local centre in the area. Issues with regards parking, litter, ASB, level of voids and state of repairs
56 x Jennifer Avenue – Distinct 1970’s housing development built as a series of staggered short terraces. Issues include litter, ASB and front curtilage development x East View South – A large area of dense 1 and 2 storey terraces which has seen significant demolitions in the last 12 months. The adjacent allotments are used for garage storage, pigeon lofts and vegetable plots. A number of plots are vacant. Main issues include the future of the housing stock and allotments, ASB, criminal damage and litter x East View – Occupies a prime location to the east of the study area and consist of 2 large retail units and a single long terrace of 2 storey properties. Main issues include immediate perceptions of the area by visitors, ASB, litter, speeding and property maintenance; and x Aviary Estate – An area of 1960’s ‘radburn’ style council terraces built around the concept of dividing the car from the pedestrian and resident. The estate is characterised by large mown grass areas and a lack of other vegetation, poor defensible space to the front and rear of properties and a geometric housing layout including an apparent surplus of pathways. Main issues include the future of the housing stock, ASB, criminal damage and litter.
4.66 Drawing nos 20121/009 – 016 in Appendix C illustrate the inherent character of each of these areas in more detail.
Constraints and Opportunities
4.67 The study area is compact in its layout and isolated with an internal focus due to its location. These characteristics together with issues both visually apparent and as raised by residents provide us with a series of design orientated ‘constraints’ (which need addressing) and ‘opportunities’ (which require to be built upon).
Constraints x Road network – layout, dimensions, connections and principal routes x Stigma attached to some areas within the study area x Poor entrance to Sunderland x Poor entrances to study area x Individual block redevelopment schemes x Poor permeability in areas and too much permeability in others x Lack of identifiable public open space with a purpose
57 x State of allotments x Poor state of Ethel Terrace area in general; and x Poorly maintained areas of land with no purpose or obvious ownership.
Opportunities x Re-use derelict land x Improve allotment offer x Build on the strong community spirit x Build on the Ethel Terrace retail heart and community focus x Create safe 24 hour pedestrian/cyclist routes x Maintain the integrity of Hylton Dene x Maintain the character of the planted and hedge lined front gardens x Provide up to the minute Bus shelters and timetable information; and x Crate clearly defined hierarchy of streets.
58 5.0 HOUSING MARKET ASSESSMENT
Housing Demand
5.1 It is essential to identify demand and supply issues in a broader Sunderland wide context to understand how these will fit within the regeneration framework for Castletown.
Future Demand Profiles
5.2 There are two views on the future of the north east and the local authorities within it; these are based on the revised sub-national population projections (2003) and economic growth models undertaken by CEBR.
Sub-National Population Projections
5.3 Census 2001 identified Sunderland’s population as 284,600 (revised figures). The latest national population projections (2003 based), predicts that Sunderland’s population will continue to decline to a population of 276,400 in 2021. This is unsurprising given past trends of a dramatic population loss of 11,300 between 1991 and 2001.
Economic Growth Models
5.4 The emerging RSS is based on the north east achieving economic growth of 2.8% and 2.4% growth for housing, based on the CEBR developed scenarios; Bronze Silver 2 scenario. This is a very different future projection for the north east compared to the sub-national projections. Bronze Silver 2 predicts significant population increase for the north east and the local authority areas within it, including Sunderland which is expected to grow to a population of 321,030 by 2021.
5.5 To provide a link between the population, housing and the CEBR economic growth scenarios which have informed the RSS, Experian Business Strategies were commissioned to create a Demographic and Housing Model. The RSS takes the outcomes of these two models to produce the following figures:
59 Net Population Dwelling % Regions Conurbation & Migration Change Change New Towns Focus 2004-21 2004-21 2004-21 Dwellings Tees Valley 979 15,000 30,000 27 Durham 1,920 -3,200 18,550 17 Northumberland 13,125 4,100 13,000 12 Tyne & Wear 21,400 16,500 49,000 44 Source: RSS Technical Background Paper (Housing) 5.6 This shows that Tyne and Wear will experience a population increase of 16,500 in the RSS plan period and that the sub-region will accommodate close to half of the new dwellings in the region. The implications of these figures for Sunderland are shown in the table below which sets out the distribution of net additions over the plan period of the RSS:
Net Additional Dwellings (annual average) Average Total p.a 2004- Tyne and Wear 2004-11 2011-16 2016-21 2004-21 21 Gateshead 435 550 560 8595 505 Newcastle-upon-Tyne 650 770 780 12300 725 North Tyneside 420 440 455 7415 435 South Tyneside 320 330 330 5540 325 Sunderland 640 665 665 9800 655
Tyne and Wear 2470 2755 2790 45015 2645 5.7 In the RSS, Sunderland’s net additions are 11,130 over the plan period 2004 to 2021. This equates to an average build rate of 655 pa. This is a significant increase in net additions which over the period 1988 to 2002 was an average of 315 pa.
5.8 The consultation document ‘Interim Strategy for Housing Land’ produced by Sunderland City Council in November 2004, suggests that there is the potential of 13,605 net additions over the RSS plan period. It sets out higher build rates over the second periods of the RSS which result in a higher number of net additional dwellings compared to those set out within the RSS.
5.9 The results of the potential economic scenarios modelled at a Sunderland are shown below.
Bronze ONS RSS Silver 2 Population 2001 284,600 284,600 284,600 Population 2021 276,400 307,973 321,030 Households 2001 119,921 119,921 119,921 Households 2021 134,174 146,653 155,839 Net Change in Households 14,253 26,732 35,918 Housing Requirement 2021 134,174 146,653 155,839 Stock 2001/2 119,860 119,860 119,860 3% Vacancy Allowance 4,025 4,399 4,675 60 Residual Requirement 10,228 22,333 31,243
Housing Supply Completions 01-04 2,525 2,525 2,525 Net Additions (RSS to 2021) 11,130 11,130 11,130 Total Net New Build (excluding replacement) 13,655 13,655 13,655 Build Rate (net new build plus 100% replacement of clearance) 803 803 803
Supply/Demand Residual Requirement 10,228 22,333 31,243 Total Net New Build 13,665 13,665 13,665 Over/Undersupply 3,437 -8,668 -17,578 5.10 It must be acknowledged that these scenarios only illustrate what might happen in the future. What does emerge that if the RSS targets are met but the population falls as projected by ONS, the result will be a stock surplus (of 3,437). For bronze silver 2 scenario, this suggests an undersupply which will require significant additions to the stock to achieve a balance. Based on RSS net additions, a more modest population growth is expected for Sunderland and shows that there will be an undersupply of properties in Sunderland.
5.11 The Sunderland Strategy sets out the aim to stabilise the population of Sunderland, but does not suggest that a reversal of the significant population decline is achievable, even coupled with the aim of a revived economy both within the City and the Region.
5.12 A number of key sites have also been identified where significant levels of investment are predicted which will generate new employment in the city, this investment and job creation will help to achieve the economic growth which is predicted. The ‘Interim Strategy for Housing Land’ suggests that by 2016 between 18,000 and 23,000 additional new full-time jobs will have been created in the city. Although it is expected some of these will be taken up by people living outside Sunderland, it is expected around 50% will be taken up by people living in Sunderland.
5.13 This new employment growth will have considerable implications on the number of new households in the City and ensuring Sunderland has stock which meets people’s needs.
5.14 For Castletown fulfilling the RSS growth rates and household formation, this would mean an increase in population in the area. This would require additional houses in the area but more importantly housing which meets aspirations to encourage people to stay and move into Castletown. 61 Migration
5.15 There are two main reasons for the population decline experienced in Sunderland over recent years, these are:
x Significant out-migration
x Deaths out numbering births leading to a negative natural change
5.16 A housing needs and migration study which was carried out in 2002, highlighted that a large proportion of people leaving Sunderland were between 35 and 44 years old and that they were most likely to be families from higher socio-economic groups. Those moving out were looking for better quality homes in a better environment.
5.17 A large proportion of people leaving Sunderland move to Durham, Chester-le-Street and Gateshead. The plan in appendix X illustrates migration patterns based on NHS patient data.
5.18 The plan highlights the significant out-migration from Sunderland leading to a net loss of 640 people.
Demand Summary
5.19 Past trends have shown Sunderland has been loosing population for a number of years. The majority of out-migrants have been relocating to Durham, Gateshead and Chester-le-Street. A significant factor influencing these moves are the choice of housing these areas provide which is currently not available in Sunderland This has led to a hollowing out of inner urban areas, particularly those that contain high proportions of terraced stock in poor quality environments.
5.20 However, population projections in the emerging RSS, based on future economic growth targets for the sub-region, show this long term decline will be reversed. Sunderland is expected to experience considerable population increase and require additional housing stock to meet the needs of the new households, particularly people from the new knowledge economy, who will move into the area to take up the new jobs which are predicted to be created.
Housing Supply
5.21 Currently the housing stock in Sunderland is failing to meet people’s needs and aspirations and is contributing to significant population loss. Overall the Private Sector 62 Stock Condition Survey concluded that vacancy rates in Sunderland were 2%, below the national average, however pockets of high vacancy rates were highlighted.
5.22 Areas with higher proportions of pre-1919 terraces were highlighted as areas with higher vacancy rates. Other work which has been undertaken in Sunderland has also highlighted that demand is decreasing for terraced houses and flats and in the future there will be an increased demand for semi-detached and detached housing.
5.23 The Regional Housing Aspirations Study, undertaken by NLP on behalf of ONE North East in 2004, indicated that most people showed a preference for semi-detached housing with gardens, off street parking within existing suburbs and / or near to open space with access to good services and amenities. When asked the factors considered important when looking to move, environment, feeling safe and reputation of the neighbourhood were considered the most important factors for these groups, scoring higher than the type of property. The key findings of the Aspirations Study were therefore the desire for traditional sub-urban style developments and the importance of the general environment and safety. The research highlighted that this form of development was capable of attracting and retaining residents across all socio-economic groups.
Sunderland Area Regeneration Company
5.24 A significant implication for Sunderland is the Sunderland Area Regeneration Company (ARC). This area which borders the River Wear has been identified as a key regeneration area in Sunderland and a major area for new housing development. As a result of there currently being little housing in the ARC area, most of the new housing development will be a significant proportion of the RSS net additions for Sunderland.
Sunderland Housing Group
5.25 Sunderland Housing Group has a major renewal plan for its stock in Sunderland, which will look at investing in some stock and renewal of a large proportion of its stock. The renewal plan sets out that it will demolish around 5,000 homes and replace them with 4,000 new homes.
63 Castletown Implications for Regeneration
5.26 The implications for the regeneration of Castletown are uncertain. It is very difficult to accurately model the impacts at a very local level. However, a number of supply and demand issues can be highlighted in relation to Castletown. These are:
x Small pockets of low demand, particularly focussing on the Sunderland Cottages in the east of the area
x Low demand of parts of SHG stock which does not meet needs and aspirations
x General trend of aspirations towards semi-detached and detached housing in good quality environment, highlighting the demand for a large proportion of the semi-detached family housing in the area; and
x Issues surrounding replacement and net additions suggest that in Castletown replacement would be on a one for one basis of replacement or a reduction of the total number of houses after replacement. -1890 600 210 930 -260 -330 -670 -280 160 120 1080 470 40 140 100 270 40 -1180 -100 100 200 210 150 110 400 370 130 140 450 380 790 610 150 310 430 1610 2930 180 410 300 400 190 140 220 260 540 64 970 1380 360 470
65 6.0 THE FUNCTION AND ROLE OF CASTLETOWN
Introduction
6.1 To complete a housing market assessment the ODPM’s Housing Market Assessment Manual (2004) sets out a number of stages to be followed. A housing market assessment needs to understand the spatial extent of the housing market. The HMA manual defines a housing market area as ‘a geographical area that contains both the origin and destination of the great majority of households that move home’. To assess the housing market area of Castletown the following data has analysed in this section:
x Migration – to understand the spatial extent of the housing market area(s)
x Travel to / Journey to work data - to analyse the relationship between the place of work and the home
Migration
6.2 The HMA Manual highlights the need to understand migration trends in order to understand how housing markets operate. Census migration data has been used to understand migration patterns in Castletown.
Lived Lived elsewhere Moved elsewhere outside outside Lived outside the the Moved out the Whole elsewhere area but associated Lived of area but associated household one year ago within the area but elsewhere within the area but Partly lived at the within the associated within the outside the associated within the moving same address same area area UK UK area UK households Sunderland 85.8% 0.4% 5.6% 0.1% 0.2% 5.8% 0.1% 4.9% Castletown 83.2% 0.9% 6.2% 0.0% 0.0% 6.4% 0.1% 5.0% 6.3 The table above shows that the turnover of population in Castletown is slightly higher than that of Sunderland with a smaller proportion of residents in the same property a year previously. A higher proportion of residents in Castletown have moved out of the area compared to the Sunderland average.
6.4 This may be as a result of:
x Dissatisfaction with the area as a place to live
x Impact of a high proportion of private rented accommodation; and
x Turnover of SHG stock.
66 Travel to Work/Journey to Work
6.5 The aim of the analysis of travel to work patterns is used to identify areas which appear to be relatively self-contained with little connection to neighbouring areas. This helps to further define the Housing Market Area. The Travel to Work Data (TTWD) from the 2001 Census for Castletown is shown below.
Dist of Dist of Dist of Dist of Dist of 5km to 10km to 20km to 30km to 40km to Dist of Works Less than Dist of 2km to less than less than less than less than less than 60km and home 2km less than 5km 10km 20km 30km 40km 60km over North East 10.8% 20.2% 22.4% 21.2% 17.2% 4.4% 1.5% 1.2% 1.2% Sunderland 9.5% 20.5% 28.5% 22.7% 12.8% 3.2% 1.1% 0.8% 0.9% Castletown 23.4% 41.6% 22.0% 10.7% 2.3% 0.0% 0.0% 0.0% 0.0% 6.6 The table above shows that the majority of journeys to work for Castletown residents are less than 5km with a high proportion travelling less than 2km. Sunderland’s average travel to work data shows far greater proportions of residents travelling further to work. The table also highlights a very high proportion of residents work from home within Castletown compared to the Sunderland average. This is possibly related to two factors: high number of self employed people in the area and a high proportion of the population who provide care in the home. The travel to work data illustrates a very local housing market with little interaction with surrounding areas, within and outside Sunderland.
Estate Agent Feedback
6.7 Feedback from local estate agents has suggested that Castletown has a very local housing market. Views expressed suggested that on the whole there is demand for properties in Castletown and it is only a small part of the area where demand is often from investors. This was highlighted as an issue and reasons for this type of investment focussed around the cheap house prices in the area and the return investors envisage that they will make.
6.8 Demand for some properties in the area have increased recently as a result of their affordability and this demand is coming from first time buyers who are unable to enter the market in other areas. Demand is primarily for properties in Elizabeth Street and Stanley Street area.
67 Submarkets Summary
6.9 Examination of the travel to work/journey to work and migration data suggests that Castletown has a relatively self contained housing market with a small sphere of influence. Other key issues which will need to be considered are:
x The relatively high levels of internal migration within the study area and general short distance migration of population of Castletown
x The lack of interaction with other areas away from the immediate geography of Castletown
x Linkages to services and key employment locations are important, these need to be considered in the option development process; and
x The housing on offer and whether it meets local needs.
68 7.0 DEMAND AND SUPPLY: CASTLETOWN CONTEXT
Analysis of Key Demographic and Socio-Economic Data
7.1 Housing markets are inherently linked to economic activity and demographics. Therefore these relationships within Castletown are explored further in this section.
7.2 The data has been taken from a number of sources including, Census 2001, Sunderland Housing Group Data and local data provided by Sunderland City Council. The data is collected at different levels; the Census data uses output areas which on average are made up of around 125 households. For the purposes of this analysis, the output areas which make up the study area have been combined and are referred to as the Castletown average, unless it is stated otherwise.
Demographic Trends
7.3 An understanding of the demographics in the study area are needed as together with the economy these shape how people are able to form households and this translates into needs and choices.
7.4 The demographics section contains an analysis of the following demographic data to understand the position in Castletown:
x Population/ Household Numbers/ Household Size
x Household Composition; and
x Age Profile.
Population / Household Numbers / Household Size
7.5 The Castletown study area has a population of 2,460 people, with 1,041 households. The average household size in the area is 2.4, compared to the average household size in Sunderland which is 2.37.
7.6 The slightly larger household size may be as a result of the higher number of families in Castletown.
Age Profile
7.7 The average age profile for Castletown is shown in the graph below. 69 Age
35.0% Cas tletow n 30.0% Sunderland Average 25.0% North East Average 20.0% 15.0% 10.0%
5.0% 0.0% Aged 0-15 Aged 16- Aged 24- Aged 44- Aged 24 44 64 65plus
7.8 The graph illustrates that Castletown and Sunderland age profile are similar but compared to the Sunderland and North East average the area has:
x Higher proportion of 0-15 year olds
x Slightly lower proportion of people aged 44-64; and
x Lower proportion of over 65 year olds.
Household Composition
7.9 The average household composition for Castletown is shown below.
One person Pensioner Household Composition
One person Other 25.0
One family and no others All 20.0 pensioners Married/Cohabiting couple No children 15.0 Married/Cohabiting couple With 10.0 dependent children Married/Cohabiting couple All children 5.0 non dependent Lone parent With dependent children 0.0 North East Sunderland Castletow n Lone parent All children non dependent
7.10 This illustrates on average that Castletown compared to the Sunderland and north east average has:
x Lower proportion of married and co-habiting couples
x High proportion of families; and
70 x Higher proportion of lone parent families.
Demographics summary
7.11 The findings of the demographic analysis show that Castletown is an area with a with a higher proportion of people in younger age groups. This links to the higher number of families and lone parent families in Castletown
Socio-Economic Analysis
7.12 To understand how a housing market operates the Housing Market Assessment manual states the need to understand the social and economic makeup of an area. This section analyses the following socio-economic variables of Castletown.
x House prices
x Income & the price income relationship
x Unemployment / Benefit rates
x Socio-economic groups; and
x IMD rank.
House prices
7.13 An analysis of house prices in Castletown has been carried out using data gathered from nethouseprices.com, which lists all house sales from 2000. Postcode sector data was not accurate enough to use, as the postcode sector covering Castletown takes in a much wider area which would affect average house prices. Sales listed on nethouseprices.com are based on all sales which have gone through the land registry and therefore is a reliable source of data which can be gathered on a street-by-street basis.
7.14 The graph below shows the increase in house prices in Castletown compared to the equivalent house type prices in Sunderland. Comparison has been made looking at terraced and semi-detached house prices as these are the dominant house types in Castletown.
71 Average House Price Comparison
120,000
100,000
80,000 Castletow n Semi-detached Sunderland Semi-detached 60,000
Price Castletow n Terraced 40,000 Sunderland Terraced
20,000
0 2000 2001 2002 2003 2004
7.15 The graph shows the difference between the average house prices in Sunderland and Castletown. The graph highlights:
x Average Castletown terraced prices below £40,000
x Castletown’s average semi-detached house prices mirror the terraced house price averages of Sunderland, illustrating the differences in price; and
x Average semi-detached prices which are considerably lower than the Sunderland average.
7.16 The table below highlights the actual house prices averages in Castletown between 2000 and 2005 (the first quarter) compared with Sunderland house prices.
Until House Price Comparison 2000 2001 2002 2003 2004 March2005 Castletown Detached - - - 130,000 - - Sunderland Detached 107,852 123,331 151,249 187,781 199,351 203,740
Castletown Semi-detached 36,500 33,877 47,142 61,367 80,881 70,833 Sunderland Semi-Detached 55,197 60,246 71,616 90,578 110,297 121,335
Castletown Terraced 12,330 19,538 22,812 32,617 33,518 43,200 Sunderland Terraced 37,883 41,031 48,127 60,218 78,499 82,571
Castletown Flat - 16,000 - - 64,960 - Sunderland Flat 40,125 47,131 57,285 68,099 90,914 90,618 7.17 There are some gaps in the house price data as a result of there being predominantly two house types which dominate in Castletown.
7.18 For semi-detached houses, the Castletown average is £30,000 less than the Sunderland average in 2004. For terraced houses the difference in price between the Castletown and Sunderland average is more apparent. The Castletown average 72 terraced house price at the end of 2004 was less than half of the Sunderland terraced price average, £33,518 compared to £78,499.
7.19 Further analysis of house prices at a street by street basis, highlights the differences in house prices in more detail. The area which has been the focus of the Neighbourhood Renewal Assessment (NRA) has the lowest average house prices across the study area. In recent years the NRA and acquisition activity by the Council may have impacted upon the house prices in the area, however even before the NRA was carried out house prices were significantly below the Castletown and Sunderland average.
7.20 The table sets out the house prices in the NRA and surrounding area from 2000 to 2005.
Castle Oswald Barron Park Street Street Terrace Street East View Average House Price South South South South South until March 2005 35,000 34,000 No sales 32,000 No sales 2004 28,294 30,900 45,000 29,668 29,000 2003 28,663 37,417 31,363 13,667 - 2002 18,000 11,167 34,950 14,000 - 2001 11,250 11,017 25,650 11,214 12,000 2000 9,500 13,717 17,450 - - 7.21 The table illustrates how low the house prices are in these streets compared to the Sunderland terraced average in 2004 of £78,499. In 2004, Oswald Terrace South had a slightly higher average terraced price compared to the other streets in the area and it was slightly higher than the Castletown average of £33,518.
7.22 Interestingly this area has also seen the greatest number of sales, suggesting a higher turnover in this area compared to the rest of the study area. East View on the eastern edge of Sunderland Housing Group’s Aviary Estate also has an average price considerably lower than the Sunderland average, £38,500. Similar to Oswald Terrace South, East View’s average is slightly higher than the Castletown average.
7.23 Turnover in Stanley Street and Elizabeth Street area is also high compared to the rest of the area. However, house prices in this area have increased considerably from 2004 and the first quarter of 2005, and now have an average price of £74,000. This is considerably higher than the other Sunderland terraces in the area.
7.24 The rest of the area, primarily semi-detached properties over the last five years have had a lower number of sales, suggesting a more stable community in this part of the
73 study area. House prices are still lower than the Sunderland average, however the difference is less significant compared to the terraced houses within the area, £80,881 compared to Sunderland’s average of £110,297.
Income & the Price Income Relationship
7.25 The gross average weekly income for Sunderland is £408.39 (taken from NOMIS August 2005); this is £4 greater than the North East average but £75 less than the England and Wales average of £483.40. The Castletown gross average weekly income is £415.01, which is slightly higher than the Sunderland average income.
7.26 The average gross weekly income for Castletown equates to an average gross yearly salary of circa £19,900. Using the assumption a household can borrow three and a half times its household income (the general acceptable proxy of purchasing power) helps to illustrate the potential housing options available to residents. Theoretically this would mean a single income household on the average Castletown wage would have a purchasing power of £69,000.
7.27 This does not illustrate income levels of the lowest quartile of earners, which is only available at a North East level. It is likely that within Castletown incomes will be in the lowest quartile and therefore affordability will be a more significant issue.
7.28 This illustrates that a single income household would only be able to buy property in the streets surrounding the NRA area, which is considerably lower than other terraced house prices across Sunderland. This illustrates the lack of housing choice for those on Castletown average incomes within the area. Obviously the choice of housing increases substantially if more than one member of the household are in employment, but the demographic analysis highlights this is not the likely situation in Castletown.
Unemployment / Benefit rates
7.29 Overall Castletown has a higher proportion of unemployed people compared to the Sunderland average (6.4% compared to 4.8%). Male unemployment is particularly high at 8.8%, compared to the Sunderland average of 6.7%, both of which are higher than the north east average of 6.3%. Female unemployment is slightly higher than the Sunderland average (4.2% compared to 3.0%). This is not as significant as the level of male unemployment in Castletown.
74 Socio-economic groups
7.30 Examination of the socio-economic groups of residents of Castletown helps build a picture of the types of employment and along with their social status.
7.31 For the purpose of the study the National Socio-economic Classifications (NSEC) in the 2001 Census have been split into higher, intermediate and lower socio-economic groups. The bands incorporated in each band are identified below.
Socio-economic classifications
Higher Intermediate Lower
Large employers and higher Intermediate Small employers and own account managerial occupations occupations workers Lower supervisory and technical Higher professional occupations occupations Lower managerial and professional occupations Semi-routine occupations
Routine occupations Source: Census 2001 7.32 The Census data shows that around 40% of Castletown’s population is made up from people from lower socio-economic groups. This links to the number of lone parent families in the area and may also be as a result of higher socio-economic groups moving out of the area to meet their aspirations and housing needs.
Index of Multiple Deprivation (IMD) 2004
7.33 IMD 2004 is a measure of multiple deprivation. There are seven ‘domains’ within which people may be counted as deprived in one or more of the domains dependant upon the type of deprivation experienced. The seven ‘domains ‘ which are combined to form the IMD 2004 are:
x Income;
x Employment;
x Health deprivation and disability;
x Education skills and training;
x Barriers to housing and services;
x Crime; and
x Living environment.
7.34 These rankings are weighted and scored to give an overall index of deprivation. This is measured at the Super Output Area (SOA). SOAs are aggregates of Output Areas 75 and normally contain an average of 1500 households. The SOAs relevant to the study area were calculated to give the area an average IMD score. There are 32,482 SOAs in the country therefore those ranked 1-1624 are within the worst 5 % of SOAs in the country, those ranked 1625-3248 in the worst 10% and those ranked 3249-6496 in the worst 20%.
Score Rank
Castletown 42.48 3914 Sunderland 39.69 4701 UK 21.67 16241 7.35 The table above shows that the Castletown average rank places the area in the worst 20% of wards in the UK. Sunderland is also placed amongst the worst 20% of areas.
7.36 This illustrates that across a number of different indicators Castletown is highlighted as an area of deprivation. However, it is ranked at the same level as Sunderland overall.
Socio-Economic Summary
7.37 The findings from the socio-economic analysis highlight:
x Low house prices across Castletown but particularly within the east of the area
x Higher turnover of population in the east of the area
x Higher proportion of people from lower socio-economic groups which links to the lower average incomes in Castletown; and
x IMD ranking in top 20% most deprived areas in the UK.
76 8.0 HOUSING STOCK
Introduction
8.1 This section analyses the demand and supply of housing within Castletown. The aim of the section is to identify where there are imbalances in the demand and supply for housing within Castletown. To create an overview of the area the following data is examined in this section.
x Tenure
x Dwelling stock
x Voids; and
x Turnover.
Tenure
8.2 The tenure of Castletown is shown in the graph below.
Tenure Mix
70.0% Cas tletow n 60.0% Sunderland Average 50.0% North East Average
40.0%
30.0%
20.0%
10.0%
0.0% Ow ner Socially Rented Private Rented Other Occupier
8.3 The graph illustrates the differences between the Castletown, Sunderland and north east averages. The graph highlights Castletown has:
x A lower proportion of owner occupation compared to Sunderland and north east averages
x High proportion of socially rented properties; and
77 x Higher proportion of privately rented properties compared to the Sunderland average.
8.4 The graph highlights the imbalance in tenure within Castletown, with considerably high proportions of socially rented accommodation and private rented properties combined with lower proportion of home owners.
Dwelling Type
8.5 The type of stock in Castletown is shown in the graph below.
House Type
60.0% Cas tletow n 50.0% Sunderland Average
40.0% North East Average
30.0% 20.0%
10.0%
0.0% Detached Semi detached Terraced Flats
8.6 The graph illustrates that Castletown’s housing profile compared to Sunderland and North East has:
x Significantly lower proportion of detached houses
x Higher proportion of semi-detached and terraced houses; and
x Lower proportion of flats.
8.7 The analysis of the type of houses in Castletown highlights the imbalance in house types, dominated by semi-detached and terraced housing. Combined with the tenure imbalance in the area, there is an issue that the housing type and tenure in Castletown does not meet current or future aspirations.
Stock Condition
8.8 When considering the housing stock and its quality in Castletown, the analysis has looked at a number of factors including:
x The proportion of housing which does not have central heating
x Stock Condition Survey information; and 78 x Information from the NRA undertaken in Castletown.
8.9 This has shown that there are only a small proportion of houses in Castletown which do not have central heating (around 1.6%), lower than the Sunderland average.
8.10 The Private Sector Stock Condition Survey which was carried out in 2002 identified 6.1% of Castletown (ward) stock as being unfit. The older Sunderland terraced stock is likely to be make-up a large proportion in poor condition.
8.11 The NRA identified that the study area shows significant signs of dwelling unfitness in the Sunderland cottages to the south eastern corner of Castletown.
8.12 The analysis of the stock condition data and Census 2001 data suggests that the stock is in a poor condition, linking to the age of the stock and the large proportion which is owned by Sunderland Housing Group (SHG). As a Registered Social Landlord (RSL), Sunderland Housing Group has to ensure that all their stock meets the decent homes standard by 2010. Discussions with SHG have indicated that their stock in the area already meets the decent homes standard.
8.13 Some anecdotal evidence does suggest that some properties suffer from dampness and that there are issues related to the quality of the stock.
8.14 AWAITING stock condition information from SHG
Voids
8.15 As a result of the acquisitions which the City Council has been making in the NRA streets in the south east part of the study area, the void properties are concentrated in this area. A number of properties have been acquired by agreement with owners and there are a number which are in negotiation. Some demolition has already taken place and it is envisaged that Castle Street South and Barron Street South will be cleared by the end of this year.
8.16 At the time of the NRA there were 20 properties in this area which were vacant and the vast majority were identified as being privately rented properties.
8.17 The void properties in the area are mainly those properties awaiting demolition and they have been secured by metal shuttering.
79 Sunderland Housing Group Stock
8.18 Sunderland Housing Group own two main areas of housing within Castletown. The new Pathway Homes site at the western edge of the study area and the Aviary at the eastern side. They own a number of other properties across the area but a large number of these have been sold off under right-to-buy.
8.19 The Pathway Homes site will provide a new development of approximately 45 houses for sale and for rent; this development will be completed by the end of 2005. There has been considerable interest for the properties which are being built particularly the 19 properties which will be let through their choice based lettings service.
8.20 The Aviary was completed in 1969 and is a ‘Radburn’ style development of 80; 2, 3 and 4 bedroom properties. At the beginning of 2005 SHG made the decision to invest in some of the managed voids within the Aviary and let these properties through direct lettings. There are some properties which need considerable investment to bring them up to a ‘let-able’ standard and these properties will not be invested in until the outcome of the masterplan is known.
8.21 Properties brought back into use are being let through direct lettings and not their choice based lettings scheme, due to the uncertainty of the future of the housing.
Demand
8.22 Demand for properties in Castletown is generally thought to be from local people or people within the private rented sector.
8.23 Overall demand for SHG properties in Castletown is lower than other SHG properties, when assessed in 2003/04. At this time when it was last measured, there were 68 expressions of interest for each property advertised compared to the average of 77 in North Sunderland.
8.24 Currently it is difficult to assess demand due to low turnover generally, there are a number of factors for this:
x Limited numbers of properties to let in Castletown; and
x Increased demand due to the SHG renewal programme which is currently impacting upon the number of properties available to let.
80 8.25 Work undertaken by SHG to help inform their Neighbourhood Assessment Matrix highlighted that there were positive views of Castletown apart from the Aviary. The Aviary is stigmatised by the poor layout and the impact of the Sunderland cottages to the south of the Aviary, which are in a poor condition. The poor environment and lack of facilities and opportunities for people were also identified as negative factors.
Length of Tenure/Turnover
8.26 The average length of tenancy in the Aviary is 10 years and in the rest of Castletown it is 14 years. The number of voids in Castletown is slightly higher than the median for SHG stock.
8.27 The time taken to let properties in the Aviary is longer than the SHG median, 14.1 weeks compared to 8.5 weeks. This is a considerably longer time compared to the median SHG re-let time and signifies that these properties are not in high demand.
8.28 Recently the Aviary has experienced a higher turnover and uncertainty over its future which has resulted in a number of voids in the area. These voids have been managed by SHG. However, there is demand for the Aviary properties and a number of properties have been let through direct allocations
Right to Buy
8.29 Since the introduction of Right to Buy Legislation in 1981, 49.4% of the original housing stock in Castletown has been sold, these figures are high compared to the Sunderland Housing Group median of stock sold through right to buy at 37.5%. For the Aviary, only 6.6% of the stock has been sold through Right to Buy, only 10 properties are currently owner-occupied properties.
8.30 The small number of properties sold through right to buy highlights the issue of the Aviary as an area where there is low demand for properties to rent and also to buy.
Housing Stock Summary
8.31 The analysis of the housing stock information illustrates that:
x Demand for the Aviary is lower than other SHG properties – average letting time is higher in the Aviary
x Very low proportion of right to buy
81 x Stigmatisation of the Aviary which is affecting demand x Poor house design, layout and environment affecting popularity of the area x Issues with the condition of the stock x Good demand for other SHG properties in Castletown; and x Demand in the Aviary affected by the properties to the south which have been the focus of the NRA.
82 9.0 VITALITY MATRIX
Methodology
9.1 The aim of the assessment is to help identify areas within Castle that are more susceptible to falling demand through mapping the symptoms and some of the drivers of housing market failure. The sustainability assessment is based primarily on the sustainability of the housing market and this influences the different indicators used.
9.2 The indicators collected and collated as part of the sustainability assessment were based under four themes:
x Migration
x Housing; and
x Socio-economic (primarily IMD).
9.3 The assessment comprised the following indicators:
x Migration – identifying the proportion of people who have moved out of the area in the year up to 2001 (Census 2001)
x Index of Multiple Deprivation (IMD 2004)
x Percentage of vacant dwellings, based on Council Tax void data
x Proportion of private renting, based on Census 2001; and
x Proportion of terraced housing, based on Census 2001.
9.4 Each Census output area (comprising circa 125 dwellings) has an overall score based upon the matrix assessment. It was considered that two factors which were particularly important in determining sustainability were vacancy and as a result this element of the matrix has been given a higher weighting. The results of this survey work have been mapped using GIS and are shown below.
INSERT MATRIX
9.5 The sustainability assessment identifies the areas that are most vulnerable and those that are the strongest. This is done by ‘traffic lighting’ the areas dependent on the results for Castletown. Their definitions are:
x Red – areas of housing market weakness 83 x Amber – fragile areas where there are some signs of housing market stress
x Yellow – areas where the housing market appears to be functioning normally but is potentially fragile should the market falter and therefore requiring monitoring; and
x Green (both ranges) – areas of robust sustainability.
9.6 The matrix highlights the area including and surrounding the NRA streets as a particular area of weakness. The Aviary and the cottages to the west are highlighted as areas of fragility where there are signs of housing market stress. The rest of the area is on the whole has been ranked green and therefore is robust and sustainable.
9.7 The findings of the matrix highlights that the area of weakness/fragility within Castletown is concentrated within the south eastern part of the study area. The area has been affected by the NRA and the consequent acquisition which has taken place. However, the breadth of indicators used in the matrix ensures that the results show the key signs of housing market weakness and fragility.
84 10.0 SUMMARY
Housing Market Drivers
Housing Market Drivers
10.1 The Audit Commission scrutiny Reports for the HMR Pathfinder identified a number of housing market drivers which impact upon the housing market in areas. The drivers identified are set out below:
Structural Economic Change Demographic Change Migration B&ME Communities Social Cohesion Student populations Poor Housing Conditions Locational Environment Layout Transport Infrastructure Aspirations Home Neighbourhood Tenure Meeting Aspirations Policy Supply and Demand For Housing Planning Policies Housing Policies 10.2 To understand how these drivers will impact on a housing market some understanding is needed of the complex interrelationships that occur which together shape the housing markets:
10.3 This section analyses these drivers and highlights the key drivers to the housing market in relation to Castletown.
Structural
Economic Change
10.4 The predicted economic growth for the north east suggests that there will be the following implications on housing in Castletown: 85 x Ensure that the stock reflects changing aspirations and there is a reduction in unpopular stock; and
x Capture the opportunities provided by housing market strength elsewhere to create a neighbourhood which people choose to live in and where demand is sustainable.
10.5 If Castletown is going to be a successful sustainable community needs to change to capitalise on the economic changes that are predicted to take place.
Demographic
10.6 The Sunderland Strategy sets out that its main aim is to stabilise the population of Sunderland but does not set itself the target of reversing the significant decline in population which it has suffered over recent years.
10.7 The RSS is based on economic growth and therefore subsequent population growth, for Sunderland this would mean a population growth of around 20,000. In order to achieve this stabilisation or reverse the trend of out-migration, Sunderland needs to provide housing which encourages and supports economic growth.
10.8 The changing demographics will have the following implications on Castletown:
x An increased hollowing out of areas of housing market dysfunction and unpopular areas as people have the ability to meet their aspirations for higher quality housing; and
x Increased pressure on desirable areas and a demand for new development which meets aspirations both in terms of housing and environmental quality.
Migration
10.9 Castletown suffers from:
x A lack of housing that meets modern aspirations
x A shortage of decent standard accommodation; and
x A limited amount of desirable housing for private sale.
10.10 These factors will continue to act as a driver for migration out from the area. The lack of desirable housing for rent and for sale has resulted in people leaving the area to find other accommodation which meets needs and aspirations.
10.11 There is therefore an emphasis needed on creating the ‘right’ environment in Castletown for providing new housing of choice that will retain and attract residents of 86 mixed income into the area. This may well include the demolition and consequent replacement of housing to restructure the market and improve the housing choice on offer.
Locational
Environment
10.12 Aspirations research has highlighted the environment and neighbourhood quality is crucial in people’s decisions regarding which neighbourhood they live in. Some parts of Castletown do not provide a quality environment which impacts on the popularity of these areas.
10.13 There is little ‘quality’ open space in the south eastern part of the study area; with poor quality allotments providing the only form of open space. These are currently the focus of social problems and improving this environment is critical to improving the overall quality of living environment for residents.
Transport Infrastructure
10.14 Castletown is ideally located; it has good bus links into Sunderland, close to the A1231 and the A19. These links need to be promoted as a positive attribute for Castletown which could promote any redevelopment which takes place. The baseline research highlighted that the Castletown’s location is one of its key selling points and this needs to be used should any redevelopment which occurs.
Aspirations
10.15 The Aspirations Research undertaken in 2004, for the whole of the north east, highlighted that generally people aspire to live in detached and semi-detached housing within a quality environment where they feel safe and secure. Some parts of Castletown, particularly the area around the Aviary Estate and the terraces to the south, do not provide housing which meets needs and aspirations. This is linked to both the tenure and house types.
10.16 The Aviary provides socially rented accommodation in a poorly designed residential environment, with little private space and poorly used public open space. The stock to the south of this is older terraced properties that are becoming increasingly obsolete. The poor quality housing provided by the terraces has been compounded by the 87 concentration of private landlord activity in the area and the acquisition which has been undertaken by the Council as a result of the NRA process.
10.17 The housing in Castletown needs to provide more choice and better quality to meet needs and aspirations to encourage people to stay in the area or move to the area. Improving the environment is key to creating a quality neighbourhood for the whole of Castletown where people will choose to live.
Policy Drivers
10.18 The Northern Way, RSS, RHS and local strategic policies will be a strong influence on the regeneration of Castletown. The RSS identifies the scale of housing required across the north east and for Sunderland over the plan period and it is possible Castletown, in combination with the other regeneration initiatives within Sunderland, could accommodate a number of additional dwellings. Specifically the need to increase demolition and replace unpopular housing and replace with housing which meets needs and aspirations. Any plans for Castletown that include demolitions and / or replacement housing will have to be developed within the context of the Sunderland demand / supply balance.
10.19 The RSS places a strong emphasis on sustainability and the linking of employment and housing which has become de-coupled over the last few decades. The regeneration of Castletown provides the opportunity to reverse this trend by linking employment and housing in an inner urban area, already well served by public transport and with close proximity to the A19 and key employment site of Nissan and the city centre. The developing masterplan provides the opportunity to provide housing to serve specific emerging markets in the area; however this needs to be reconciled with the national and regional policy focus of tackling low demand and creating sustainable communities in deprived areas. Therefore these twin targets of opening up new markets to benefit Sunderland’s economy and improving areas of housing market dysfunction to create a sustainable future need to be reconciled and will be a crucial objective of the option generation process.
Housing Market Assessment Conclusions
10.20 The baseline assessment has highlighted the current supply/demand dynamics within Castletown and how this sits within the wider Sunderland context. Additionally this has highlighted weaknesses within the parts of the study area in addition to the
88 market strength in parts of the area which can be the basis for growth and improvement.
Housing Market Function
10.21 The evidence base has highlighted the area currently has a local housing market. However, with market strength elsewhere some parts of Castletown are becoming more popular for first time buyers because they are still viewed as affordable.
10.22 Its location is a positive factor; it has good public transport links and access to the A19 and Wessington Way which lends itself well to the creation of a rejuvenated housing market. The assessment would appear to indicate Castletown could attract and sustain a wide range of households if the right conditions are met.
Sustainability
10.23 Parts of the area are unpopular and will continue to be unpopular without fundamental changes. The economically active have moved out of the area particularly the Aviary and the terraces to the south, increasing numbers leaving behind a polarised and economically disadvantaged population and a high concentration of private renters. To ensure the future sustainability of the area there is a need to bring back people who have left the area and provide housing which meets the needs of people who want to live in Castletown. This will create a mixed income community, but this will not be possible unless the right housing types and conditions are met to attract groups to Castletown. Additionally there is the need to supply housing to meet the aspirations of existing residents and therefore affordable housing options will need further exploration.
Diversification of tenure/dwelling stock
10.24 There is the need to attract a wider range of socio-economic groups to Castletown and secure its future sustainability. The research has shown that in the areas of Castletown where there is a greater proportion of owner occupied properties and semi-detached housing with gardens and off-street parking, these parts are more sustainable. This contrasts with the unpopular house types in a poor environment within the south eastern part of the area. The availability of owner occupied housing needs to be available for those even on low incomes and therefore schemes such as Homebuy and other shared equity schemes are a possible method of increasing the
89 availability of owner occupied housing to all socio-economic groups. This would help to reduce the proportion of private landlords in the area and encourage a more sustainable community with increased owner-occupation.
Environmental/Neighbourhood improvement
10.25 Environmental and neighbourhood quality has been identified as key to improving the desirability of parts of Castletown and improving the image of the whole area. Currently Castletown suffers from a poor quality environment and negative perception, which is particularly apparent from the eastern access to the area from the A1231. Improvements to the environment are crucial to the regeneration of the estate. A key concern that needs to be addressed is anti-social behaviour and the links to underage drinking in the area. The layout of the Aviary Estate particularly needs to be considered to improve the environment in this part of Castletown. The quality and provision of allotments needs to be reviewed, to help reduce the problems which currently exist in these areas. Significant change for Castletown would provide the opportunity to use secure by design principles.
90 11.0 TRANSPORT STUDY
Introduction
11.1 The City comprises three distinct areas with different transport characteristics:
x Urban Sunderland – An urban area exhibiting a range of densities of development from Victorian terraces close to the City Centre to suburban estates on the outskirts (includes Castletown area)
x Washington – A new town with high levels of car ownership and associated personal mobility, reflected in the dispersed spatial location of facilities in the town; and
x Coalfield Area – Centred on Houghton-le-Spring and Hetton-le-Hole this semi- rural area includes several former coal-mining settlements. Transportation infrastructure improvements are seen as an important element in the regeneration of this area.
11.2 The City Council’s policies and documents strongly reflect national and international policies on transportation and sustainable development. Promoting the welfare and best interests of residents and businesses, and meeting the primary needs of disadvantaged groups are included in the aims of the City Strategy, which identifies the following basic values as guiding future policy: Quality, Choice, Access, Equality, Opportunity and Safety.
11.3 Clearly transport policy has an impact on the achievement of all these objectives and it is essential that the Local Transport Plan, Regional Transport Strategy, Public Transport Strategy, etc. informs and is informed by the Community Strategy, the objectives of which are also largely influenced by current City Council priorities and funding regimes such as SRB.
11.4 The Urban Development Plan (UDP) provides the statutory land use planning framework for the City until 2006. Its overall transportation policy seeks to:
‘develop a transportation system which emphasises accessibility rather than mobility, thereby minimising traffic movements, whilst allowing residents the choice of more environmentally acceptable modes of transport.’ 91 11.5 The City Council’s State of the Environment Report, produced as part of the Local Agenda 21 process, recommended the following future transport policy directions: x An Integrated Transport Strategy to promote the use of public transport, walking and cycling, extend the benefits of personal mobility and reduce the environmental impact of transport x Promotion of land use policies which seek to minimise the amount of travel x Seeking to transfer freight from road to rail x Introduction of traffic management measures to reduce current traffic levels; and x A review of the highway construction programme.
11.6 As part of the Local Transport Plan, the City has summarised local problems, opportunities and proposals. The problems include the following: x Accidents x Traffic x Fear of accidents and crime x Increasing car use x Accessibility x Public transport x Access for disabled people x Car use in Washington x Environmental conditions x Former mining areas x Port Access, and x Infrastructure maintenance.
11.7 Accessibility in particular is a key component of development planning and it recognises the close inter-relationship between land use and transportation. The key to a socially and environmentally sensitive transportation policy is in employing a broad range of transport modes. 92 11.8 New developments must be accessible to people travelling on foot, by bicycle or on public transport whilst accommodating those who are mobility impaired. Maximum reasonable walking distances to/from public transport facilities are regarded as being 400m (bus) and 600-800m (rail). Ideally shorter distances should be aimed at to make short, safe and attractive walking routes. Vehicle accessibility is seen as only one of the factors in the location of development.
11.9 NEXUS for example, are pioneering ways of tackling social exclusion through transport because it is seen as a vital contribution to local economic performance and regeneration, thereby increasing people’s chances for employment, education, training and access to health services. NEXUS has developed UCall, a demand responsive transport project that offers passengers flexibility in terms of routes, stop and collection points. It is being used to plug the gaps in services left by commercial operators who have found the routes it serves unprofitable.
11.10 Good transport is essential to provide access to places of work, healthcare, education and food shops.
11.11 Sunderland North suffered from the run down in the traditional industries of shipbuilding and coal mining and reflected in the Neighbourhood Renewal Assessments, which highlight high levels of disrepair and unfitness of housing of which most is largely terraced, and poor quality environment amongst others. Regeneration and renewal requirements include not just for housing but also transport and accessibility, environment, employment and community facilities in order to create sustainable communities.
11.12 The area of North Sunderland, of which Castletown is part of, is an integral part of the larger urban area of Sunderland, there being a high level of interaction between the northern and southern areas for employment, the provision of goods and services and social and recreational facilities. With Castletown close to the City conurbation and major transport links, the integrated restructuring of the area would improve its status as a desirable suburb of the City.
11.13 Castletown is served by numerous bus services that provide a journey time of approximately 15 minutes to the City Centre, providing the basis for 93 sustainable travel, which is currently well used due to the proximity of the area to the centre and low levels of car ownership in the area.
11.14 Castletown (including Hylton Castle and North Hylton) has issues of transport and accessibility as highlighted by some indicated by the following neighbourhood statistics: x Households with no car or van 50.4% compared to Sunderland as a whole of 39.9% and England 26.8% x 20% of those working travel less than 2km to work; 34% 2km to less than 5km; 24% 5km to less than 10km; and x 11.4% of the employed population travel by bus; 70% by car as either a driver or passenger; 1.7% by bicycle; 8.5% on foot (see later statistics).
11.15 UDP transport policies include for the area: x NA35 – Multi-user routes, following the river Wear from the Seafront to Hylton Bridge via the Wearmouth Colliery site and Hylton Riverside x NA37 – Bridges for pedestrians and other users will be provided across Wessington Way in the vicinity of Castletown to provide ease of access to developments proposed within the Hylton Riverside area x NA38 – provision for cyclists. Well designed, designated and advisory cycle routes with connections to adjacent uses and to strategic multi-user routes will be provided as appropriate in the following locations – adjacent to Wessington Way and passing through developments at Hylton Riverside to link Hylton Bridge and the strategic multi-user route defined in NA35. Also on footpaths crossing Hylton Bridge; and x SA50.2 – Road proposals. A new Wear Bridge at Deptford which would create a high standard strategic dual carriageway link, connecting the town centre to the trunk road network. The bridge will bring capacity relief to the existing bridges, assist regeneration of the City and in conjunction with the Eastern Relief Road and the Southern Radial will give greatly improved access from the north and west of the City to the Docks and the Hendon Industrial area.
11.16 Policy T1A of the UDP, Alteration No. 2 Central Sunderland Redeposit (September 2005) states that the Council will seek to implement a transport strategy that maximises accessibility within central Sunderland by a variety of modes, effectively integrates transport modes and relates the provision of transport facilities to the pattern of land use.
11.17 The Sunderland Strategic Transport Corridor (SSTC) and new river crossing (Claxheugh route, connecting Wessington Way with European Way and 94 Pallion New Road) are an identified priority route, together with completing the multi-user route either side of the river as the City centre is seen to be expanded to the riversides with new developments.
11.18 The SSTC will consist of a joint public transport/highway corridor with four lanes wherever possible (two traffic lanes and two lanes dedicated to public transport). Significant walk and cycle provision will be made both along and across the corridor. The scheme is supportive of the main strategic aims of the Sunderland Strategy notably by increasing levels of access to public transport facilities, encouraging people to take up cycling and walking, increasing the accessibility of employment opportunities and promoting urban living.
Area Review
Accessibility by Bus
11.19 Bus services serve the Castletown area via the primary east-west link through the area -Ethel Terrace, but which also travels via Castletown Road to the eastern extent of the area and Hylton Castle Road to the western extent of the study area.
11.20 Bus services do travel along Wessington Way and Colima Avenue to the south of the study area and Washington Road north of the study area. In particular, additional services do travel via Washington Road.
11.21 Bus stops are at approximately 300m spacings and are a combination of shelters (significant vandalism) and stands. Timetables are displayed at stops. The majority of the Castletown study population is within a 3 minutes walk time (normal maximum ideal walk time to/from bus stops based upon national statistics walk speeds) – with only areas to southern extent of study area (Riverdale, Oswald Terrace South) and northern extent (Ivy Dene) outside of the ideal walk access. Walk times will vary depending upon age, however, the topography is flat and there are numerous footway links east- west and north-south.
95 Bus Services
Service No. Route Start time End time Frequency Frequency of services of services daytime evening (weekdays) (weekdays) (mins) (mins) 135/136 (Go Sunderland 05:18 23:43 30 M-F 30/60 M-F North East) Circular 30 Sat 30/60 Sat 30/60 Sun 30/60 Sun 160/163 (Go Heworth- 06:54 23:57 30 M-F 60 M-F North East) New 30 Sat 60 Sat Lambton 60 Sun 60 Sun 186 (Go Sunderland 08:02 18:02 60 M-F None North East) - 60 Sat None Washington None None 190 (Go Sunderland 07:22 18:22 30 M-F None North East) – North 30 Sat None Hylton None None 537 (Go Sunderland tbc tbc 60 M-F 60 M-F North East) – South 60 Sat 60 Sat Shields 60 Sun 60 Sun X4 Downhill- 06:30 18:55 10 M-F 30 M-F Superoute Doxford 10 Sat 30 Sat (Stagecoach) Park 30 Sun 30 Sun
11.22 Services 135, 136, 186, 190, 537 and X4 normally operated with wheelchair accessible low-floor buses.
Points/issues
x Reasonably good level of accessibility to bus services, although no services via Castle View (although buses either end at Hylton Castle Road and Dene Road)
x Limited services although reasonably frequent in daytime
x low level of evening services in particular
x City Centre served by most buses
x Bus shelters modern but vandalised
x Youth congregation near to bus stops on central section of Ethel Terrace
x Timetables displayed at stops
x Level of use appears reasonable
x Bus operators do not favour traffic calming
x Bus stops often blocked by parked cars in Ethel Terrace
x Car parking restricts ease of movement in central section of Ethel Terrace 96 x TSETT report due August; and x U-Call and community transport.
Accessibility on Foot
11.23 There are footways to all roads, interconnected with alleyways and footpath links.
11.24 Using the Post Office as a central point within the area, the majority of the area is within a 6 minute walk time and the whole study area is within 13 minute walk time (national statistics recommended walk times) based upon road footways. The addition of the small alleyway and footway connectors improves accessibility.
11.25 However there are a number of points/issues: x Personal security x Narrowness between buildings x overgrown vegetation x poor lighting x vandalism – broken glass x Powered 2-wheel vehicle use in Burn area x too many alleyways and footways to use? x Congregating of youths near to access points x Pedestrian movements in vicinity of Ethel Terrace retail – along retail frontage and across Ethel Terrace – no formal crossing points x School pedestrian movements – primary and secondary. Focus upon Ethel Terrace area and Hylton Castle Road. No crossing patrols (being reviewed). Road safety issues x Castle View and East View used as primary pedestrian routes to from the retail and social receptors to eastern extent of study area x Pedestrian movements focussed primarily upon education, retail and social/recreation (includes Hylton Dene Burn area) x Footway bridge over A1231 Wessington Way (barrier?!) – only formal link over to Sunderland Enterprise Park. No at –grade crossings over Wessington Way although there is Grange Road (pedestrian and C2C cycle access); and
97 x Need to designate primary walking routes and improvement of?
Accessibility by Cycle
11.26 Cycle use does not appear high although Castletown’s immediate topography and the residential road network permits the opportunity for easy local cycle access. Beyond the study area, the A1231 (and River Wear) and rolling topography starts to restrict the potential for cycle access, although it has been noted that cyclists do use the A1231.
11.27 There are no formal cycle routes in the Hylton Dene Burn area and no current plans. LTP limited in current financing for new cycle routes, although Washington Road would be ideal for introduction of on-road cycle lanes. There is the potential for connection/improvement of C2C with Grange Road and Ferryport Lane.
11.28 The C2C route runs south of the study area along the Wear. The nearest access point is via Grange Road and is predominantly recreational off-road route but is used by some to access the Nissan site.
11.29 As part of the strategic context of the new Wear crossing, it is hoped that roundabouts on the A1231 will be removed.
11.30 All of the Castletown study area is accessible within a 10-minute cycle ride. Within 20-minutes extends to Southwick and Hylton Castle.
Points/issues: x Traffic calming features are not conducive to local cycling; but x Traffic speed potential intimidator to cycle use x Extent of strategic cycling limited x Cycle use at Castle View school? x Informal cycling within the Dene area; and x Limited provision of secure cycle parking.
98 Accessibility by Private Car
11.31 Dominated by traffic calming throughout the study area. Every road except for Hylton Castle Road, Dene Road/Castletown Road and A1231 Wessington Way has some form of traffic calming features, including a number of the small alleyways. Bus operators and emergency services had been consulted at the time.
11.32 Traffic calmed largely 10 years ago (through City Challenge funding) – accidents and excessive speed through an inappropriate area. Minor additions since then through the LTP process as part of accident reduction. Traffic Management not aware of any complaints or requests for more traffic calming so successful from that perspective.
11.33 Traffic calming (vertical) features include speed humps (round top and flat top) and speed cushions, although the former dominates. Horizontal features are chicanes on Castle View and also on Craigeavon Road. Speed cushions on bus routes (a standard was agreed with the PTE and bus operators) are less effective. Speed humps are good at what they are intended, whereas speed cushions work best when there is plenty of traffic. Priority working (chicanes) can often lead to acceleration issues.
11.34 Recent speed surveys on the approaches to the mini roundabout (built 5- years ago) at Baron’s Quay Road/Grange Road due to complaints, but no significant issues were recorded.
11.35 ‘20mph speed zones’ and ‘school safety zones’ are in situ. The former exists along Ethel Terrace/Grange Road although its extent appears confused to the eastern extent due to signage abuse.
11.36 Two primary east-west links through study area – Ethel Terrace and Castle View. Both reasonably well used, although Ethel Terrace is the dominant route. Oswald Terrace forms a north-south link between Castle View and Ethel Terrace (20mph zone) as does East View but to a lesser extent (although bus route). Hylton Castle Road and Dene Road also provide north- south linkage.
11.37 Street pattern is a mix of traditional terraced streets, circular residential access routes and cul-de-sacs serving residential properties from Castle 99 View and Ethel Terrace. In some areas there is a dominance of on-street residential parking, which in parts creates significant carriageway narrowing e.g. Jennifer Avenue and Ashwood Grove.
11.38 ‘School traffic’ at morning and afternoon times dominates the section of Grange Road, common of many primary schools in particular. Off-street parking provided but to be reviewed to provide a better drop off and pick up facility. There are limited parking restrictions throughout the study area.
Points/issues x Traffic calming dominated x Variety of vertical traffic calming features together with horizontal features and road signage (20mph and school safety zone) x No formal pedestrian crossing points x On-street parking – residential issues and retail issues (Ethel Terrace). New parking standards for residential are 1.33 per unit x Ethel Terrace effectively becomes a section of one-way working for up to 100m due to parking both on both sides – no off-street parking for retail here. Kwik Save and retail area to the eastern extent of the area has off-street parking x Residential parking causes ‘pinch-point’ on Hylton Castle Road (close to mini- roundabout with Grange Road) x No traffic calming on Hylton Castle Road – greater vehicle speeds? x Private roads (plans to be reviewed) x Road safety – children’s activities often extend onto the streets x Observations do not suggest Castle View Road and Ethel Terrace used to any significant extent as through routes or indeed excessive speeds at times of site visits x Parents parking both sides along Grange Road at school times – typical of many primary schools x Receptors for traffic activity clustered on Ethel Terrace and eastern extent of study area, together with the local schools (Castletown Primary and Castle View Secondary); and x Examine recent traffic calming practice and ‘shared use’ environments.
100 Road Safety
11.39 Personal Injury accident (PIA) data obtained from TADU covers the latest 5- year period.
11.40 There are cluster points around the two roundabouts on the A1231 (10 slights at roundabout with Baron’s Quay Road; 7 slights at roundabout with Dene Road). Other PIA’s largely restricted to Baron’s Quay Road/Hylton Castle Road and Craigeavon Road (12 accidents including 2 serious along full extent of road within study area); Grange Road/Ethel Terrace (4 slights); Castle View Road (3 slights) and Dene Road/Castletown Road (3 slights).
11.41 Full data is being summarised and reviewed. Dominance of vehicle to vehicle accidents although there also appears a high proportion of accidents involving pedestrians on the local roads and in particular children ranging from age 3 to 16. Of the 40-50 PIA’s, approximately 10 involved young pedestrians.
Points/issues x PIA data obtained and being summarised – primarily vehicle-to-vehicle accidents but high proportion of pedestrian/vehicle accidents involving children x Accidents clustered at the two roundabouts with Wessington Way – these are large, ‘high speed’ roundabouts carrying significant levels of traffic on the main through route. A number of shunt accidents and side collisions with vehicles entering from the side roads x Visibility at Dene Road/A1231 in particular is very poor due to footbridge and poor road geometry x Other particular ‘main’ junctions within the study area are the priority junctions with Hylton Castle Road and Dene Road, mini roundabout Hylton Castle Road/Grange Road, mini roundabout on Castle View Road/The Briars, Ethel Terrace/Oswald Terrace. However, PIAs do not suggest particular accident blackspots x On-street parking dominates many of the residential and retail frontage areas and crossing the roads between parked cars is noted within the comment on a number of pedestrian PIA’s. Ethel Terrace has a high level of cross movements by pedestrians and is a particular area of concern x Residential parking on immediate section of Hylton Castle Road travelling north from mini-roundabout with Grange Road creates a pinch point x School Travel Plan for Castletown Primary School – no school crossing patrol at present but undertaken PV2 counts to assess need across Grange Road at the 101 school gates. Not warae of a Travel Plan for Castle View school. Council normally deal with any issues that arise. More walk and cycle trips to the secondary school x Vehicle speeds on Hylton Castle Road have a feeling of being much greater although the road is narrow and subject to 30mph speed limit. There are no formal pedestrian crossings on Hylton Castle Road although there are the attractors of Castle View School and Castle View Centre, and Sports Ground on Grange Road x Has traffic calming been successful? and x Frequent side road junctions with Ethel Terrace and Castle View Road, often with poor side road visibility either due to parked cars or building lines.
Traffic Flow Data
11.42 There is limited traffic flow data for the area. What is available has been provided by TADU. No further traffic flow surveys are to be undertaken as part of the study.
11.43 A 12-hour manual classified count was undertaken on Grange Road just east of Baron’s Quay Road on a weekday in 2001. This revealed traffic flows of approximately 1600 vehicles in each direction over period 0700-1900 hours. Peak hour periods are 0815-0915 and 1630-1730 as well as lunchtime inter- peak period 1130-1230. Peak periods carry about 360 two-way vehicle movements. Cyclists actually are quite high at about 100 movements per day.
11.44 The only other traffic survey is from a permanent ATC on Wessington Way A1231 just east of Castletown Road. This reveals traffic flows of approximately 20,000 two-way on an average weekday (2005 data). Traffic flows on A1231 just east of the A19 are in the order of up to 36,000 per day.
Points/issues x Limited traffic flow data although traffic flows not considered to be significantly high on the main ‘distributors’ around the study area x A1231 Wessington Way, key strategic route, high traffic volumes; and x Peak hour flows on Grange Road in the region of 360 vehicles two-way, not high, within ‘environmental’ threshold flows for urban areas.
102 Census Data (example)
Castletown Employment Trips Mode Split
Mode Split Percentage Home 5.07% Tube 0.00% Rail 0.00% Bus 21.74% Taxi 0.00% Car Driver 50.36% Car passenger 11.96% Motorcycle 1.09% Cycle 0.00% Walk 8.70% Other 1.09%
Average Distance to Work (from site) Percentage work at home 6.29% less than 2km 25.55% 2-5km 30.94% 5-10km 19.76% 10-20km 10.88% 20-30km 0.90% 30-40km 0.00% 40-60km 0.00% 60km and over 2.10% no fixed place of work 2.10% work outside UK 1.20% Work offshore 0.30%
Policy and Strategic
Points/issues for discussion x A19 and A1231 strategic routes and access but also a ‘barrier’? x Part of the City’s urban framework and close to major conurbation and transport links x Road access to the eastern extent of the study area is confusing and layout mixed, substandard x Accessibility and avoiding social exclusion is key component, ‘How can Castletown maximise its potential? x Materplanning to ‘make the connection’, be ‘implementable’, ‘good practice’ to be replicated elsewhere 103 x Castletown as a community with spirit x Community groups advanced and transport seen as a key issue x Barriers to accessibility and wider implications x Parking issues identified x Bus services/public transport improvements would like to be seen x Traffic calming and the character of the residential areas x Hylton Dene Burn – good local facility but issues of poor quality access and personal security – intimidation and behaviour issues x ‘Like for like’ replacement in traffic terms in the area as a result of residential improvements x Population structure - 2001 Census datasets being used x Sunderland Enterprise Park – key employment zone x North Sunderland Draft Action Plan – Community Safety; Economic Growth; Environment (local shopping centres with a programme of environmental and traffic management improvements; better public transport; Hylton Dene improvements); Healthy City (accessibility to primary care services); Housing; Lifelong Learning (access to transport; local resources); Social and Cultural Activities; Young People (availability of facilities; transport costs for young people) x Cycling Strategy – document looks towards 2010; policies to increase cycling and meet the needs of cyclists being integrated into other policy initiatives – UDP and LTP; A19 and other routes seen as major barriers as well as River Wear; 1.2% of resident workers in Sunderland used a bicycle for their journey to work but 76% live within 4km of their workplace (1991 Census); increase cycle routes, better design and linkage, new development integration, etc x Regional Strategy – improve public transport and cycling and walking networks to provide attractive and sustainable alternatives to the car; increase social inclusion; support the regeneration of coalfields areas x UDP – River Wear Crossing – improved link between the City Centre and Wessington Way; Accessibility key to social and environmental improvements; should not have to walk more than 400m to bus;etc x Census data 2001 – 22% under 16; 14.7% 60 to 74; 5.7% unemployed (of which 38% long term unemployed); 15.1% retired; 11.6% permanently sick or disabled; 29.4% one person households; and x Nexus – public transport accessibility and social inclusion issues.
104 Overall Points/Issues to date x Policy – Social Inclusion and Accessibility for all x Proximity to the City Centre and part of the Urban structure of the city x High level of bus use; low car ownership x Good level of accessibility to bus services, though could be improved x Bus services reasonably frequent and time periods cover evenings to and from the City Centre although services somewhat limited x ‘Quality Bus’ environment not present x Pedestrian access – key focal points based upon education, retail and social/recreational in particular x Lack of any formal or controlled pedestrian crossing facilities (including the school) x Footpaths in Dene and urban area – security issues, poor quality x Cycling – good immediate local topography in Castletown and local strategic route but traffic calming not cycle friendly and local barriers – A1231, Dene topography x Traffic and Roads – Traffic calming dominance in overall urban character of Castletown; Grange Road/Etthel Terrace and Castle View Road dominate within the area, framed by Hylton Castle Road, A1231 and Dene Road/Castletwon Road x Street pattern ‘mixed’ especially at eastern extent of area, distributor type routes and residential access x Traffic calming vertical and horizontal with signage for 20mph and school safety zone, although extent of 20mph along Ethel Terrace is not clear x Parking issues in locations especially Ethel Terrace x Traffic flows within Castletown limited data but would suggest within an acceptable ‘environmental’ threshold as opposed to being a capacity issue; and x PIA – a number of young pedestrian accidents within Castletown area itself, although remaining accidents appear vehicle to vehicle at junctions, especially with A1231.
11.45 Overall Castletown it is a compact area with good accessibility within its own boundaries to facilities and services. It is close to major employment sites and the City Centre but there are barriers to inclusive access. The area has particular issues which in transport terms includes safety, parking, traffic calming and integrated permeability of the area by all modes. 105 12.0 COMMUNITY AUDIT
Introduction
12.1 An audit of the local community facilities has been undertaken in order to ascertain the coverage and state of current facilities, current and proposed projects together with other relevant information.
12.2 Discussions which have taken place with local community providers and groups have been summarised in section 9.0 Stakeholder Consultations.
Facility audit
12.3 The facility audit included a mapping exercise of the key facilities in the area, this included, green spaces, community facilities, health facilities, places of worship and shopping areas.
Shops
12.4 The majority of local shops in Castletown are on Ethel Terrace. Some of the shops are well maintained and appear to be in good condition compared to their surroundings, however a few of them need refurbishing. Ethel Terrace lacks specialist shops such as butchers, bakers and grocers.
12.5 There are a few small shops on Castle View, such as Castle View Stores, Hiz and Herz Hair Salon and The Bedroom and Bathroom Furniture Warehouse. The majority of them are in bad condition and need refurbishing. There is a stationery shop called ‘Scrap Village Ltd’ on Oswald Terrace West that is in good condition.
106 12.6 There are a number of large shops on Castle View and Dene Road, such as Kwik Save, Storey Carpets, HSS Hire Shop, DP Furniture Express, Harveys and The Bed Shop. The majority of these shops appear to be in good condition.
Community Facilities
12.7 Castletown has a number of community facilities such as the Community Centre, the Snooker and Gym Club, Castle View Sports Centre, the Scouts Head Quarters, the Methodist Church and the Social Club.
Community Centre
12.8 The Community Centre appears to be in good condition, although it’s surrounding grounds are over grown. The centre’s management committee has recently been taken over.
12.9 The centre runs the following courses:
Monday: Am - Mothers and Toddlers Pm - Stay and Play
Tuesday: Am - Coffee Morning Pm - Mothers and Toddlers Evening - Divas Club (people aged 30+)
Wednesday: Am - Mothers and Toddlers Pm - Stay and Play Evening - Social Evening (e.g. bingo night)
107 Thursday: Am - Mothers and Toddlers Pm - Over 60’s club Evening - British Legends
Friday: Am - Mothers and Toddlers Pm - Afternoon Club
Saturday All day - No current activities
Sunday All day - No current activities
12.10 In total between 250 and 300 members use the Community Centre on a week-to-week basis. It is broken down into the following clubs:
x Mother and Toddlers and Stay and Play: 31 toddlers and 30 mothers attend at least one of the sessions during the week
x Coffee Morning: Between 40 and 50 people attend the Coffee Morning
x The Over 60’s Club: Between 40 and 50 people attend the Over 60’s Club
x The Afternoon Club: Between 40 and 50 people attend the Afternoon Club. Age Concern provides a mini bus to transport 12 of the members to and from the club
x Divas Club: Only 5 – 6 people attend this club, the Community Centre is hoping this number will increase in the short term; and
x The Social Evening: Between 30 and 50 People attend the Social Evening.
12.11 In September the Community Centre is going to provide an After School Club on Monday and Friday evenings between 4pm and 6pm. The Sunderland Family Support Zone have organised this.
The Snooker and Gym Club
12.12 The Snooker and Gym Club appears to be in good condition, however the railings that protect their windows need painting and the upstairs windows are boarded up.
108 Castle View Sports Centre
12.13 Castle View Sports Centre is run by Castle View School. It is in very good condition and well used by the local community. The sports centre is open Monday to Friday from 9am until 10pm and from 9am until 5pm on Saturday and Sunday. However, the school has priority use of the sports centre between 9am and 5pm Monday to Friday.
12.14 The sports centre has the following facilities: x Swimming Pool: The swimming pool is open to the public and organised groups from 5pm onwards Monday to Friday and all day Saturday and Sunday. The centre runs swimming lessons two days of the week between 4.30pm and 6pm, therefore the swimming pool opens for public swimming at 6.30pm on those days. Every Thursday the swimming pool has an ‘inflatable night’ for children. The pool also provides a ladies only night on Tuesday x The Gym: The gym is open to the public everyday, however you have to be a member to use the facilities x The Community Hall: The Community Hall is open to the public Monday to Friday 4.30pm onwards and all day Saturday and Sunday. However, the Sports Centre offers children’s parties on Monday, Thursday and Friday nights between 3.30pm and 6.30pm. They also hire the hall out to organised groups, such as Slimming World x School Holiday Clubs: The Sports Centre runs a children’s club during the school holidays called The Total Base Club. The children have organised events planned for them three days of the week. This year between 30 and 40 children have attended the club, however over the past two years they have had a poor attendance; and x Outdoor Activities: The Sports Centre has some run down tennis courts, which have now been closed as they were underused. There are however plans to build a floodlit 5-a-side pitch and netball club on the courts.
Scouts Head Quarters
12.15 The Scouts Head Quarters building appears to be in good condition, however some of its surroundings are over grown and covered with litter and glass. The groups consist of boys and girls and are currently full with waiting lists. They take place as follows:
Cubs Wednesday 6pm – 8pm
Scouts Friday 7pm – 9pm.
109 Methodist Church
12.16 Castletown Methodist Church is in good condition, its grounds are well kept and there was very little litter surrounding it. The Church’s opening times are as follows:
Sunday School 2pm Sunday Service 6pm Sisterhood Monday 2pm Play Meeting Wednesday 6pm
12.17 Sunderland City Council Surgeries take place on the 2nd and 4th Tuesday of every month between 11am – 12 midday.
Social Club
12.18 Previously The Working Men’s Club, the Social Club in Castletown appears to be in poor external condition. The club has a number of boarded up windows and the railing that protects the remaining windows needs painting. There is a function room that is used for bingo and often booked at weekends, when the club can be quite busy.
Nursing Homes and Health Facilities
12.19 Castletown has two nursing homes; Northview Lodge on Northview Road and Lansbury Court on Parkhouse Avenue. Both are in very good condition. There is also a Doctors Surgery on The Broadway, however this does not fall within the Castletown Masterplan boundaries.
110 Garages
12.20 There are two garages in Castletown, Castletown Motors on Oswald Terrace West and Reg Vardy on Dene Road. Castletown Motors seemed to be well used, however it would benefit from being refurbished. Reg Vardy is just outside of the Masterplan boundaries, but appears to be in good condition.
Industry
12.21 Wessington Industrial Estate on Dene Road is just outside of the Masterplan boundaries. There are a few units that are well maintained, but the majority of them would benefit from being refurbished.
Communal Neighbourhood Space
12.22 There is an area of paved communal space off Ethel Terrace, which is divided in two by a road accessing Elizabeth Street. The area is mainly used by young people as a place to gather although there are no seating facilities. A pole mounted CCTV is located in the south eastern corner.
111 Open Space
12.23 There are a number of small pockets of open space in Castletown. Quite a few of the sites, such as the land on North View, Oswald Terrace South and the caged land behind the Cemetery are over grown.
Schools
12.24 There are two schools in Castletown, however only Castletown Primary School falls within the study boundaries. The primary school is of recent construction and is in good condition. Castle View School, off Cartwright Road is a flat roofed school of modular construction as is programmed to be replaced in the near future as part of Sunderland’s PFI ‘Schools for Future’. x Castletown Primary School: Approximately 400 children attend the school aged between 4 and 11 years old. The School provides a breakfast club and after school club for children in both Key Stage 1 and Key Stage 2. The breakfast club runs from 8.15am – 8.55am and approximately 60 children attend this club every morning. Breakfast costs 20p per child per day and the school tries to promote healthy eating. Mainly volunteers, such as parents and grandparents run this club. The after school runs every night from the end of the school day until 6pm. There are current plans to build a treatment room at the school which would be a conservatory in the courtyard linked to the school via a covered walkway. x Castle View School: Castle View School is the main secondary school in the area with 90% of the children from the surrounding primary schools feeding into it. Castle View School provides education for pupils aged 11 to 16. Currently 112 they do not provide post 16 education, however in September 2006 they are joining up with St Peters Comprehensive and are going to provide a joint sixth form college.
12.25 The School manages Castletown Sports Centre, which is used by the school Monday to Friday 9am – 5pm. The community can use the Sports Centre at the evenings and weekends. They have plans to extend the activities provided by the centre in the near future.
12.26 The school also runs Technical and IT courses for the residents of St Margarets Court. They are hoping to extend the courses and the catchment area in the future.
12.27 These together with other local facilities, are identified in appendix F.
113 13.0 MARKET ASSESSMENT
Introduction
Commercial Property in Castletown
Retail
13.1 This section considers the provision of retail premises within the Study area. It compares key indicators of vitality and viability with other retail areas in the North Sunderland area; it identifies some of the weaknesses of Ethel Terrace that have contributed to its decline as a shopping parade; and it recommends a level of provision that is sustainable in the longer term.
13.2 There are two principal concentrations of retail property within the Study Area. At the eastern end of the area is a Kwik Save supermarket and various bulky goods retailers trading from a former warehouse that has been sub-divided. To the east of this and just beyond the boundary of the study area are an Alfa Romeo showroom, a pair of purpose built retail warehouse units, occupied by Dallas Carpets and Wickes DIY, and a McDonalds restaurant. These retail outlets are located close to the junction of Castellian Road and the A1231 Wessington Way. Wessington Way is the principal route from the A19 trunk road to Sunderland city centre and the northern suburbs of Sunderland. The retail warehouses within the Study Area therefore serve a much wider catchment than Castletown and are heavily reliant on car borne customers.
13.3 The units complement Hylton Riverside Retail Park which is located immediately to the south of Wessington Way the strong demand for retail warehouse accommodation here is underpinned by the scale of provision and its proximity to Wessington Way. There are no vacant units and rental values have been increasing. If suitable sites were to become available adjacent to this cluster, we would expect development of further retail warehouses to be viable.
13.4 Convenience retailing within the Study Area is centred on Ethel Terrace. Here there are 16 units arranged on either side of the road. Historically Ethel
114 Terrace was a larger centre supporting a wider range of shops. As it has contracted some premises have been converted to residential uses. The eastern part of Ethel Terrace comprises two storey terraces with ground floor shops and first floor flats, though a number of upper floors are vacant. These terraces were built in the early 20th century and their repair and condition reflect their age. At the west end of Ethel Terrace the retail frontage is more fragmented. On the north side of the street is a cleared area which has been fenced and paved, but has no obvious function. Beyond this is a post office. On the south side is a former Methodist Church, now occupied a betting shop, and a single storey building which provides a supermarket and three smaller shops, two of which are vacant.
13.5 Generally, established neighbourhood centres such as Ethel Terrace have declined as shopping habits have changed and comparison retailing has gravitated to larger centres. The decline in Ethel Terrace has been hastened by the reduction in its catchment population through housing market failure and clearance, as well as competition from neighbourhood retail centres serving adjacent residential estates. There are currently four vacant retail units on Ethel Terrace. Three are of single storey format and thus poorly suited for conversion to residential.
13.6 Two of the four units have recently been put on the market, though all four have been vacant for at least three months. The agent has received an offer at the asking rent for the smaller of the units. But the larger unit has only received interest from someone wanting to use it as a vehicle repair workshop.
13.7 The continued decline of this centre is likely unless there is significant intervention to address weaknesses in both the retail provision and the local housing market. The principal weaknesses of the retail centre are:
x The age and condition of buildings x The declining catchment population x The absence of dedicated parking x The interrupted retail frontage
115 x The vacant plot; and
x Vacant upper floors, resulting in lower rental income and therefore less expenditure on repair.
13.8 Ethel Terrace is well served by public transport. It is on the route of six bus services, and there are bus stops on either side of the road immediately adjacent to shops. This is an asset for a thriving centre, but in a declining centre it can result in loss of trade to alternative locations.
13.9 The table below compares Ethel Terrace with other neighbourhood centres serving adjoining areas of North Sunderland. It identifies centres with at least five units and compares them by size, vacancy rate, rent and rental growth. The rental data is derived from valuations for business rates purposes, prepared by the Valuation Office Agency. Such rents generally err on the low side, but they do allow a comparison between different centres and over time, on a consistent basis. The valuation date for the 2005 Rating List is 31st March 2003.
Comparison of Retail Parades in North Sunderland Parade No. of Vacant Zone A Rents Rental Growth Comments Shops Shops (£/m²) 1998-2003 Ethel Terrace 16 4 50 11% High street. Single and 2 Castletown storey. On street parking. Chiswick Square 11 0 75 7% Purpose built. 2 and 3 storey. Hylton Castle Dedicated parking. Blackwood Road 11 0 50 12% Purpose built. Single and 2 Townend Farm storey. Dedicated parking. Keighley Avenue 5 0 35 11% Purpose built. Single storey. Downhill Dedicated parking. Rawmarsh Road 5 0 50 0% Purpose built. 3 storey. On Redhouse street parking.
13.10 Whilst Ethel Terrace is the largest centre it is the only one with vacant units; and though rents have grown in line with other centres, in absolute terms they are significantly lower than at Chiswick Square, which is only 1 km to the north west. Furthermore the buildings at Ethel Terrace are older and in poorer repair than those in the other centres, and require regular expenditure by tenants. The competing centres generally serve post-war housing estates, with established and stable catchment populations. Ongoing maintenance costs will be less, dedicated parking areas provide greater
116 convenience for car borne shoppers and the retail provision is less fragmented.
13.11 Whilst the future vitality of Ethel Terrace as a retail location is critically linked to the housing area it serves, regeneration proposals should not solely concentrate on the housing areas. They must incorporate improvements to this neighbourhood centre to stem further decline. These could include consolidation, provision of dedicated parking, improvements to properties and other measures.
13.12 Ethel Terrace now principally serves the Castletown residential area, and given current demand there is scope for a slight reduction in the number of units. Opportunities include the demolition of the former butcher’s shop, which is in a very poor condition, and the relocation of the Post Office to the heart of the retail area. The proposed regeneration should, in the longer term, lead to increased demand from retailers. The proposals should therefore be sufficiently flexible to enable additional retail units to be accommodated in the future. Additional units could be created through conversion or new build, though the viability of the latter is likely to be marginal.
Workspace
13.13 This section considers the provision of workspace accommodation within and surrounding the Study Area. It considers the quantity and quality of the stock, and the availability and demand for units. It specifically examines the market for small units that would accommodate local businesses. We have restricted our analysis to units on industrial estates to the north of Wessington Way.
13.14 To the south of Wessington Way extensive office and industrial development occurred during the 1990’s as a result of the area’s Enterprise Zone (EZ) status. The Zone expired in April 2000 and subsequently vacancy rates amongst the offices rose sharply. Much of the stock developed within the EZ comprises units suited to mid-sized and larger occupiers, but occupying a 14 acre site within the EZ is a purpose built managed workspace complex for small and start-up businesses. 117 13.15 The North East Business and Innovation Centre is home to over 150 companies. It provides light industrial units from 355 to 6,250 sq ft, offices from 100 to 1,500 sq ft and a range of incubator units specifically for start-up businesses. In July 2003 Innovator House was opened to cater specifically for new and young businesses within the IT and e-commerce sectors.
13.16 Within the Study Area there are no industrial estates, but immediately to the east is Castellian Road where Sunderland City Council has provided 9 small workshops, some of which have been linked to create larger accommodation. Sunderland City Council also own four small units at Riverbank Industrial Estate a short distance to the north east, and on the west side of Castletown Way. On the east side of Castletown Way is a well established industrial area incorporating both Southwick Industrial Estate and Riverside Road. Here a wide range of units has been developed. Smaller and medium sized units are predominantly owned by Northern Trust. On the northern edge of this industrial area is the site of the former Federal Mogul factory, which is now being redeveloped as North Hylton Enterprise Park. This will provide bespoke industrial premises, a veterinary surgery for the PDSA and 25 speculative trade counter/workshop units which are to be developed in three phases. The first phase of 5 units is currently under construction. Key data on these principal industrial areas is set out in the table below.
The Stock of Industrial Units around Castletown Estate Owner No. Size Range Vacant Condition Age Units (m²) Units Castellian Road Sunderland City 6 67 – 407 0 Average 1970’s Council Riverbank Ind Est Sunderland City 4 211-903 1 Average 1980’s Council Southwick Ind. Est. Northern Trust 37 50 –1,484 0 Average 1980’s Riverside Road Northern Trust 23 47-270 0 Good 1990’s Blocks 14/16 Sunderland City 9 181-560 1 Good 1990’s Southwick Ind. Est. Council North Hylton Enterprise Park Prospect Estates 25 207-218 N/A Good 2005 (proposed) onwards Total 104 2
13.17 Amongst the small and medium sized workshop units, current vacancy rates are low, and whilst the new development by Prospect Estates will increase
118 availability, it is to be phased, and so the market is unlikely to be swamped by vacant units during its construction. The quality of the stock is average to good and all the units within these locations have been built within the last 30 years. It should be noted that there are other old and poor quality units providing basic workshop accommodation in back-street locations, but these are relatively few and tend to be in areas of pre-war housing. As much of the housing stock comprises post-war estates there is relatively little of this low quality but affordable accommodation in the North Sunderland area.
13.18 An analysis of all units within the Southwick/North Hylton industrial area reveals that 42% are of less than 100m². A further 13% are between 100 and 200m², and a further 26% are between 200 and 500m². Despite the low vacancy rate, managing agents consider that there is a relatively high proportion of units of less 1,000 sq ft, and strongest demand is for units of 1,000 sq ft to accommodate expansion by existing tenants. The development of units of around 200m² at North Hylton Enterprise Park will only go some way to meeting this shortage. These units have consent for trade counter use, and are being marketed as such at high rents that reflect this quasi-retail use. Asking rents at Phase I equate to £8.00 psf compared to £4.70 psf for 1,500 sq ft units at Southwick Industrial Estate. Demand for units at North Hylton Enterprise Park is reported as being slower than anticipated, though this is expected to improve once the units have been completed and bespoke accommodation for Nixon Hire and the PDSA provides a greater level of development activity on the site.
13.19 The improving demand is also evident in the rising rents. Whittle Jones are achieving £5.30 psf on units of 550 sq ft at Southwick Industrial Estate. The managing agent reports that demand has increased significantly since CCTV cameras were installed around 4 years ago. Prior to this around 50% of units were vacant. Now there appears to be capacity for further development of workspace within the North Sunderland area, particularly to meet demand for units of 100-200m².
119 14.0 STAKEHOLDER CONSULTATION
Introduction
14.1 In undertaking the baseline assessment for the Castletown Masterplan the consultants have undertaken comprehensive stakeholder consultation with those groups, individuals and service providers who have an active role in the community of Castletown and who would be also be actively involved in both the preparation of a Masterplan and its implementation and monitoring.
14.2 A summary of discussions with the above is indicated below under the following sections:
x Housing and Development
x Business
x Environment; and
x Community, Local Services and Residents.
Housing and Development
14.3 Consultations have currently been undertaken with the following housing/development stakeholders:
x Sunderland City Council Officers
x Sunderland Housing Group; and
x Estate Agents.
14.4 Key Issues arising from the Sunderland City Council consultations include:
x NRA acquisitions and issues of anti-social behaviour in allotment area is creating instability in Park Street South
x Local landlords operating in the area, high numbers of private rented properties
x Retail offer on Ethel Terrace needs to be improved, important local centre
x Demand for Stanley Street area is from first time buyers as this is viewed as affordable
x Housing type in Castletown is the issue rather than the location; and
120 x Potential development just outside the study area behind St. Margaret’s Church and to the north-west of the area at Kidderminster Row.
14.5 Key Issues arising from the Sunderland Housing Group North consultation included: x Managed voids at the Aviary now being repaired so that they can start letting the properties x Aviary properties will be let through direct lettings but not through SHG choice based lettings x Demand for the Aviary is higher than three years ago, views that this is as a result of less vacancies across their stock generally coupled with demand for people to live in Castletown, who see the Aviary as an opportunity to live in Castletown x Rest of properties in Castletown there is high demand and low turnover x New Pathway development site is primarily bungalows and there has been high demand for the new properties which will go back on the site; and x SHG investigating shared ownership options.
14.6 Key Issues arising from the Estate Agents consultations include: x Local market in Castletown x Sunderland housing market has slowed as a whole x Demand for properties in Castletown by first time buyers as a result of some properties being affordable, particularly in Stanley Street, Elizabeth Street area x Generally demand for properties in Castletown, small pockets where there is lower demand, particularly highlighted were the cottages to the east of the study area x High demand for semi-detached properties in the area; and x New housing in surrounding areas has also been successful and properties are in high demand.
Business
Consultation Methodology
14.7 Retailers within the study area were interviewed by telephone. The interviews followed a common set of questions, which was modified as local issues became clearer. An example of the questionnaire is contained within Appendix H. 121 14.8 The questions were intended to gather factual information and to generate dialogue, so that issues of importance to the retailers could be identified and understood. As a result conversations were allowed to depart from the prepared questions. One retailer wrote to the Council covering many of the issues within the questionnaire. These were clarified through a subsequent telephone conversation.
14.9 The consultation is part of the process to identify options for the regeneration of Castletown generally and Ethel Terrace in particular. Interviewees mainly trade from this street. In addition consideration was given to relocation of retailers from Castle View. These were consulted but asked a different set of questions to understand their intentions and their views on the prospect of relocation. Similarly we approached Castletown Motors, which is within a predominantly residential area, to understand their intentions and assist the identification of options for housing clearance.
Consultees
Interviewee Business Address Mrs Linda Davy C & LF Davy Pharmacists 2 Ethel Terrace Mr Eric Mason Castletown Post Office 35 Ethel Terrace Mr Harry Branney Castletown Newsagents 9 Ethel Terrace Mr Singh Castletown Fisheries 13 Ethel Terrace Ms Andrea Robson Village Salon 6 Ethel Terrace Mr Peter Hall Flowers in the Window 8 Ethel Terrace Mr C Jawaharlal Jay’s Off Licence 15-17 Ethel Terrace Mr I Braithwaite Estates Dept Co-operative Group 16-22 Ethel Terrace Mr David Rees Estates Dept, Kwiksave Castle View Mr Geoff Stokel Property Manager, Storey Carpets Castle View Mr Gilmour Castletown Motors Oswald Terrace West
General Comments
14.10 The regeneration plans have created considerable uncertainty. There are rumours of compulsory purchase, and some retailers, particularly those approaching retirement age are considering their exit strategies. Few have long-term commitment to area, and some see no point in further investment by themselves as it would be “throwing good money after bad”.
14.11 Some retailers have been looking at their legal position: e.g. blight notices, total extinguishment claims, and the level of compensation that they might be entitled to. There are fears that compensation may not be sufficient for replacement premises, and that there may be no suitable premises to relocate to. 122 14.12 A significant proportion of retailers are owner-occupiers, so if the regeneration proposals include replacement retail units in a new parade, it is not clear, and seems unlikely, that freeholds would be available / affordable. A recent scheme in Pennywell was seen as model not to be replicated in Castletown – the rents are set too high, at £15,000, to be within reach of local businesses. If existing businesses are to be retained in Castletown then some subsidy of new premises may be required.
14.13 There are also concerns that a new development may not incorporate living accommodation above shop units. For some this would make it harder to sell their businesses in the future.
14.14 Businesses that had been established in the area for many years were critical of earlier actions by the Council, claiming that interventions were not appropriate. This has resulted in some scepticism that the Council could do a good job now. Intervention is seen as coming too late, and the Council is not seen as having power to make a difference. There is also some frustration emerging over the slowness of the current process. One trader is finding it difficult to sell his business given the uncertainty over future plans for the area in general and more specifically their impact on his property.
Retail Centre
14.15 The shops on Ethel Terrace principally serve Castletown but some, notably the chemist and post office, also attract a limited amount of trade from Hylton Riverside. The retail area is well defined, and limited in size so customers will walk the whole length of the pitch, despite the breaks in frontage, intermittent residential properties, and unpredictable opening hours of some outlets. The Post Office is most remote from other units, but a reasonable proportion of its customers visit other shops in the same trip. It is helped by having the Co-op opposite.
14.16 The Co-op is an important anchor for Ethel Terrace. It has a low turnover relative to other stores in the Group, and over the last 12 months sales of alcohol and cigarettes have been hit hard by what it claims are sales of bootleg products by one of the off licences on Ethel Terrace. However it has no plans to close its store and has expressed interest in taking premises in a new development if that were proposed. 123 14.17 Some long established businesses consider that they are important to the social structure of the community, and that if they were to close this would lead to further community breakdown.
Business Forum
14.18 Three long established traders form an informal business forum, but are not necessarily representative of all businesses in Ethel Terrace. Past efforts to organise a wider organisation met with disinterest, and has put off subsequent attempts.
14.19 There is however a general interest amongst retailers about being kept informed and contributing to the option selection process.
The Businesses
14.20 Though there are some long established businesses on Ethel Terrace there are also several that are less than 5 years old. Some businesses have had a short life span, which suggests that they have been unable to make sufficient levels of profit in this location. This may be due to locational factors and the problems within the area or it may be down to the businesses themselves.
14.21 The catchment areas for the businesses vary. Those dependent on passing or local trade are struggling, whereas others with a wider catchment are trading satisfactorily. The latter include the pharmacy, for which over-the- counter sales are now a minor part of the business, and the fish and chip take-away. Retailers serving the immediate catchment have experienced mixed trading conditions over the years, but in the last 12 months or so, many have seen declining turnover as housing demolitions and increased levels of anti-social behaviour have impacted on businesses.
14.22 The majority of businesses consulted have only a Castletown presence and thus the decline of the area makes a greater impact on their owner’s livelihoods. Only 2 businesses on Ethel Terrace are part of retail chains, these are the Co-op and Reuben Page.
124 The Properties
14.23 There is a mix of owner occupied and tenanted properties. Owner occupation represents a significant commitment to the area, although few proprietors live above the shop. Some of the tenants also live locally and have a similar commitment to Castletown, and have made significant investment in their properties. Some businesses in tenanted property expressed dissatisfaction about the condition of their premises and the lack of expenditure by the landlord on either repairs to the shop or to upper floors.
14.24 A significant proportion of upper floors are vacant. Some are let as residential flats.
Impact of Local Factors on Business
Parking x Traders are unanimous that on-street parking is sufficient and helps their businesses. If there were more shops, more parking may be required. “Jut-ins” would help
Public Transport x Generally bus stops and bus routes not seen as supporting centre. Most customers are perceived to come on foot or by car
Street Environment x Earlier Council initiatives have caused problems. Litter bins when vandalised left holes in pavement. An adverse camber on the pavement in one place has caused problems with surface drainage. Vacant units, poor quality shop fronts, and poor repair and condition of premises all create a low quality shopping environment that impacts on trade
Traffic Calming x Road humps may be deterring passing trade as drivers take alternative routes
Crime x Theft and criminal damage has been exacerbated by sale of alcohol to minors by one off licence on Ethel Terrace. This has encouraged on-street drinking and has attracted young people from outside the area. Bootleg alcohol and cigarettes are also reputedly being sold by this off licence and this has impacted on legitimate trade 125 Vandalism x The majority of businesses have been affected. Vandalism has been exacerbated by the sale of alcohol to minors (see above). It is felt that there has been a lack of action by the police, though recently the situation has improved slightly. Landlords of vacant property have also been slow to take action, where their properties have been vandalised. Landlords have also ignored anti-social behaviour by some tenants of flats over shops
Housing Demolitions x These have resulted in loss of trade for some businesses. The scale of demolitions is impacting on the fabric of the community. Some problem tenants have moved away, but signs that problem tenants just moving from Colliery to Joyce Terrace / West View. Vacant flats above shops may reduce incidence of problem tenants, but is seen as increasing security problems for ground floor retailers
Customer Profile x This principally comprises young mothers, unemployed, and elderly persons – the profile is little changed, though it is hoped that new housing would increase the number of families. Some lunchtime custom comes from Hylton Riverside (e.g. for pharmacy, post office services). Suggestions emerging from the wider public consultation exercise included restaurants and a wider mix of retailers. But existing traders consider that such businesses would not be viable in the Ethel Terrace area
Adjoining Businesses x Some businesses are seen as contributing to the poor appearance and decline of Ethel Terrace. The take-away results in litter. The sale of alcohol to minors is resulting in anti-social behaviour. Some landlords have let upper floors to problem tenants. The irregular opening hours of some shops are seen as undermining the efforts of other retailers. Lack of investment in fascias / shop fronts creates a poor shopping environment
Premises Condition x To some extent a lack of investment in properties has been caused by uncertainty, in particular cases though it is regarded as “short sighted greed”, and a lack of long term commitment to area
Interventions
14.25 New development options suggested by consultees include:
126 x A shopping parade on the Co-op site and land to rear (similar to the neighbourhood centre at Town End Farm). One consultee is of the opinion that new retail development should not be here as the majority of the catchment area’s housing is to the north of Ethel Terrace, and customers may be reluctant to cross Ethel Terrace. It will be important that retail development here has frontage to Ethel Terrace to capture passing trade x Clearance of south side of street to provide additional parking and consolidation on north side through development of clearance land x Provision of high quality dwellings to increase the catchment population and provide a broader range of residents; and x Pub or restaurant to improve evening trade. There are mixed views of the appropriate size of the centre and the types of businesses that could viably be established in Castletown. Some residents want a wider range of shops, but retailers are more realistic as to the viability of these units.
14.26 An alternative location for the development of a new retail area that has been proposed is on the site of the Kwik Save and Storey Carpets units at Castle View. Both these retailers are trading profitably and are not considering relocation.
14.27 Property demolitions proposed by consultees include: x The former butchers / former launderette at 8 Ethel Terrace which has been vacant for around 10 years; and x The former chapel that is now occupied by Reuben Page Bookmakers was also identified.
14.28 There is some scepticism about the ability of grants to fundamentally change the perception of the area. They are perceived as a “sticking plaster” solution to problems that need more radical intervention, but they are seen as having some merit if used as part of a package of measures. One retailer had previous experience of grants and considered them poorly managed by Council and overly bureaucratic in their administration. There was scepticism that some retailers would want to contribute any of their own money to property improvement, but others were more enthusiastic. Any proposed grants system would need to be straightforward and generous if high levels of take up are to be stimulated.
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14.29 There is a willingness to consider major interventions, though this must respect the size and type of businesses, their ability to pay appropriate rents, the high costs of relocation etc. Grants may have their use as part of a package of measures, but on their own are insufficient.
14.30 Regeneration of the retail area must be closely linked to the regeneration of housing areas. It will be dangerous to carry out further major housing clearance as this could significantly undermine some businesses. New housing development and an increase in the catchment population should be early deliveries of the regeneration proposals
14.31 The transparency and speed of the regeneration process are important. Lack of information is creating rumours and uncertainty, and prevents sale of businesses.
14.32 Retailers at Castle View (Kwik Save and Storeys Carpets) are trading well. They have no plans to vacate or sell their premises. The cost of their relocation would be significant, and would result in limited benefits.
14.33 Similarly Castletown Motors is trading well, and should not be disturbed unless redevelopment of adjacent housing areas is proposed.
Environment
14.34 Consultations have taken place with officers at SCC Countryside Services, SCC Landscape and Reclamation, English Heritage, Durham Wildlife Trust and The Friends of the Dene. The key issues arising were as follows: x Numerous events organised in the Dene through the North Sunderland Family Action Zone x 5 local primary schools visit the Dene and EH sites as part of Key Stage 1 and 2, with secondary pupils from Castle View visiting as part of a Leisure and Tourism module x Dene crossings are regularly maintained. Un-adopted paths area maintained when funding is available x Funds are currently being sort for a FOD/DWT cabin which can act as an office and classroom; and
128 x Dene now a Local Nature Reserve, with the long term hope that it will receive a Green Flag award. This means that all Dene stakeholders are against closing off pedestrian access points.
Community, Local Services and Resident Consultation
14.35 A walkabout was held in Castletown on the 14th July with residents, councillors and council staff. This was followed by a public meeting in which 59 people signed in. A more detailed report back is located within Appendix G. However, the main concerns can be brought together under the following issues: x The shopping facilities, open space and traffic management needs to be improved along Ethel Terrace x There are concerns about the future of the colliery housing and the Aviary Estate x There are concerns about the Community Association and how it is run, although this is changing through the new management structure x Concerns were expressed about the future of the allotments and the pigeon lofts; and x Concerns over the increasing levels of ASB in the Dene.
14.36 A number of interviews with agencies working in the Castletown area has also been undertaken and their thoughts may be summarised as follows: x Castletown is a very tight community which agencies find it difficult to get in to x The Community Association needs to be strengthened x There needs to be a strong vision for the area that everyone signs up to; and x There are concerns about young people both in terms of anti social behaviour but also high numbers of young mums who are often housed by poor private landlords.
14.37 More detailed notes of these meetings are located in Appendix G.
14.38 Overall people have been very supportive and helpful when we have spoken with them, and are looking forward to the prospect of developing plans which will give certainty and commitment to the area.
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