2. THE NATIONAL AND REGIONAL PLANNING CONTEXT

NATIONAL GUIDANCE

2.1 The Secretary of State publishes a range of national planning guidance (see Appendix 12) relevant to development plan preparation. It is principally contained in Planning Policy Guidance Notes, Planning Policy Statements, Minerals Planning Guidance Notes and Minerals Policy Statements, but Circulars and other guidance still apply in many instances such as good practice guides. The plan has taken regard of the most up to date national policy guidance as at 4th May 2007. In addition, the plan seeks to assist in the delivery of the Government’s sustainable development strategy, as expressed in “Securing the Future.” The overall strategy of the plan has been developed to support the five guiding principles of the strategy:

• living within environmental limits

• ensuring a strong, healthy and just society

• achieving a sustainable economy

• promoting good governance

• using sound science responsibly.

Specific policies will contribute to the achievement of the shared priorities for UK action:

• sustainable consumption and production

• climate change and energy

• natural resource protection and environmental enhancement

• sustainable communities.

2.2 In May 2007, the Government published ‘Planning for a Sustainable Future’, a White Paper that sets out detailed proposals for reform of the planning system. Provisions are expected to be made within a forthcoming Planning Reform Bill.

REGIONAL PLANNING GUIDANCE (RPG1)

2.3 Regional Planning Guidance for the North East (RPG1) was adopted in November 2002. It became statutory policy in September 2004 and provides the strategic context to which all development plans in the region have regard. The main points in relation to Gateshead are summarised in the following paragraphs.

2.4 Regeneration is at the heart of the development strategy for the region, with emphasis on accelerating the renaissance of Tyne and Wear, securing rural regeneration, revitalising town and city centres and improving access to jobs and services. Regeneration should include the provision of new employment, housing and recreational opportunities, and the improvement of the area's living, working and leisure environment.

2.5 Plans should investigate the potential for increasing levels of development by identifying attractive sites for both economic and housing development. Priority should be given to the development of previously-developed land and buildings in the most sustainable locations.

2.6 A realistic range of sites and opportunities for industrial and commercial development must be maintained. Inner area locations and sites near to the strategic transport network should be included. High priority should be given to investment in deprived areas, but certain developments can only be accommodated elsewhere.

2.7 There should be greater choice of housing, which should be built in sustainable locations. Plans should support initiatives to improve both public and private sector housing, and address the need for affordable housing. Housing provision should take account of demand. There should be realistic choice balancing the renewal and improvement of existing stock and building additional dwellings. It identifies an annual average requirement for 5,050 new dwellings in the North East between the beginning of 2002 and the end of 2006.

2.8 Development plans should set out a hierarchy of centres which promotes the vitality and viability of existing city and town centres, and which reflects the current role of the MetroCentre as an existing out-of-centre retailing facility. The role of marginal centres should be reviewed and adapted. Plans should ensure that existing centres are the focus for a wide range of activities, including new retail development, to reduce the need to travel.

2.9 Transport policies should assist urban regeneration, support economic development and reduce social exclusion. Land-use and transport planning should be integrated to reduce the need to travel and to make the best use of existing infrastructure. Plans should adopt a balanced approach to investment in roads and public transport, whilst improving access for all to key facilities.

2.10 The importance of the region’s distinctiveness and environment is emphasised. Plans should protect and enhance the region’s cultural and natural heritage, including sites of nature conservation importance, landscapes and the character of historic settlements and buildings. Plans should encourage the reclamation of derelict land to regenerate those areas affected. Provision should be made within plans for appropriate mineral working, having regard to the need for extraction, the location of reserves and the need to minimise impact on the environment and local communities.

2.11 The broad extent of the approved Green Belt should be retained in order to safeguard the countryside from encroachment and to check the unrestricted sprawl of Tyneside. Exceptional circumstances must prevail over other considerations to justify alterations to the boundary of the Green Belt.

REGIONAL SPATIAL STRATEGY FOR THE NORTH EAST

2.12 The emerging RSS contains replacement policy coverage on housing, the economy and transport, which are viewed as the key regional issues. Other topics such as retailing, minerals and waste, and renewable energy have been updated as a result of regional studies, strategies and policy development. The North East Assembly produced its Submission Draft version of the document in June 2005 and an Examination in Public commenced in March 2006 to test the soundness of the Draft RSS.

2.13 The Submission Draft RSS incorporate the following development principles:

• to promote an urban and rural renaissance

• to contribute to the sustainable development of the region

• to reflect a sequential approach to land allocations; and

• to include appropriate phasing and take a “plan, monitor, manage” approach to new development.

2.14 The Submission Draft RSS sets out a long term strategy for the Spatial Development of the North East up to 2021 and beyond. It provides the spatial context for the delivery of other regional strategies and is part of the Statutory Development Plan system. Local Development Plans are required to be in general conformity with it and Local Transport Plans should reflect the transport strategy set out in it.

2.15 The Submission Draft RSS’s locational strategy supports polycentric development and redevelopment of the Tyne & Wear city region and the Tees Valley city region by concentrating the majority of new development in the conurbations and main towns, particularly within the core areas. The Tyne and Wear City Region’s core areas that are priorities for regeneration include the Tyne Corridor extending over the Bridging NewcastleGateshead area, Newcastle City Centre, Teams, Gateshead Quays and town centre. The Tyne and Wear city region is identified as the main economic driver within the North East region. It includes the conurbation of the contiguous built up area of Gateshead, Newcastle, North Tyneside, South Tyneside, Sunderland City and Durham City. Emerging locational strategy also supports: development appropriate in scale within the towns in the regeneration areas and rural centres; maintaining vibrant rural areas; conserving and enhancing biodiversity, geodiversity and high quality landscapes; and improving internal and external connectivity and accessibility.

2.16 Submission Draft RSS identifies the key challenges facing the region:

• reducing regional disparities

• managing structural economic change

• maximising productivity

• linking with universities and colleges

• increasing participation rates and business skills

• stemming and reversing population decline

2.17 The policies addressing these challenges are constructed under four key themes: these are:

1. delivering economic prosperity and growth

2. delivering sustainable communities

3. conserving, enhancing and capitalising on the region’s diverse natural and built environment, heritage and culture, and

4. improving connectivity within and beyond the region

2.18 These principles and policies are generally reflected in this UDP .

2.19 The Submission Draft RSS takes these issues forward with the intention of delivering an urban and rural renaissance:

Delivering economic prosperity and growth embraces:

• sustainable economic development

• regional brownfield mixed use development

• embracing further and higher education

• information and communication technology networks

• culture and tourism

• casino development

• employment land portfolio

• prestige employment sites

• reserve sites

• airports

• ports

• chemical and steel industries

Delivering sustainable communities embraces:

• urban and rural centres

• MetroCentre

• out-of-centre retail and leisure development

• total dwelling construction

• improving the housing stock

• dwelling provision

• managing housing supply

• improving inclusivity

Conserving, enhancing and capitalising on the region’s diverse natural and built environment, heritage and culture embraces:

• landscape character

• historic environment

• biodiversity & geodiversity

• the aquatic and marine environment

• flood risk

• trees, woodland & forests

• sustainable energy use

• renewable energy generation

• planning for renewables

• onshore wind development

• overall minerals strategy

• aggregates minerals

• opencast coal

• sustainable waste management

• waste management provision

• hazardous waste

Improving connectivity within and beyond the region embraces:

• international gateways

• regional transport corridors

• regional public transport provision

• strategic public transport hubs

• demand management measures

• parking and travel plans

• accessibility within and between city regions

• accessibility in rural areas

• sustainable freight distribution

2.20 A panel report was published in August 2006 following the Draft RSS Examination in Public. In May 2007 the Government prepared proposed changes to the draft revision, taking into account the recommendations made by the Panel and other considerations as set out in Planning Policy Statement 11. A period of consultation followed the publication of the proposed changes, which ended in August 2007. Any further changes to the RSS will be published for consultation before the Secretary of State finalises the RSS for publication, which is expected to be early in 2008.

REGIONAL HOUSING STRATEGY

2.21 The draft Regional Housing Strategy was developed by the North East Housing Board and the final draft was issued in July 2003. The vision behind the strategy is of the “region working together to ensure that every part of the North East offers everyone a choice of good-quality housing in successful, secure and sustainable neighbourhoods”. There are four broad aims to the strategy:

• replacing market failure with modern and high-quality housing and sustainable communities.

• providing new housing in response to household growth and aspirations for better housing.

• improving and maintaining the existing housing stock.

• addressing specific housing needs, such as affordability in rural areas and the needs of specific groups in the population.

2.22 In July 2005, the North East Housing Board produced a “New Housing Strategy for the North East” which builds on the first version of the strategy by strengthening the relationship between housing, economic and demographic change. This will integrate the Regional Housing Strategy (RHS) with the emerging Regional Spatial Strategy (RSS) and the Northern Way Growth Strategy and align the RHS with the Regional Economic Strategy (RES).

2.23 The strategy provides a long-term vision for housing in the North East and also sets the context for housing investment in the region. This includes allocation of the regional housing capital and market renewal resources that the Board is directly responsible for over the next two financial years, 2006/07 and 2007/08.

2.24 The strategic objectives, set out below, introduce the issues which this strategy addresses. They have been updated, but continue to prioritise the four themes identified in the last RHS. These four objectives provide the framework for this strategy:

• to rejuvenate the housing stock to meet 21st century aspirations, replacing market failure with high quality housing in the right locations to help create successful, cohesive and sustainable communities;

• to ensure the type and mix of new housing provides choice, supports economic growth and meets housing needs and demand. This will reflect the diversity of urban and rural communities and the needs for affordable, family and prestige housing;

• to secure the improvement and maintenance of existing housing so that it meets required standards, investing in sustainable neighbourhoods; and

• to promote good management and targeted housing investment to address specific community and social needs, including an ageing population and the needs of minority communities; this will be integrated with the Supporting People programme and promote greater community involvement.

2.25 The North East England Housing Strategy ‘Quality places for a dynamic region’ was published in July 2007. It is envisaged that it will be kept up to date at least every two years. It sets out four strategic objectives:

• rejuvenating housing stock and markets;

• providing choice through a better mix of types of new homes;

• improving and maintaining existing homes; and

• meeting specific housing requirements within our communities.

REGIONAL ECONOMIC STRATEGY

2.26 The Regional Economic Strategy for the North East — Realising Our Potential (October 2002) states that by 2010 the North East will be vibrant, self-reliant, inclusive and outward-looking. The aspirations and profile of the region will be raised, and as a result it will become more prosperous. The strategy has six key objectives:

1. creating wealth by raising the productivity of businesses — many of the region’s companies are coming together to develop key business clusters and collaborative networks. Strategic regional investment is being promoted.

2. establishing a new entrepreneurial culture — this is required to increase the number of thriving companies within the region.

3. creating a healthy labour market — access to learning needs to be increased and a highly skilled workforce should be retained to support higher levels of economic growth and development of clusters.

4. universities and colleges at the heart of the region’s economy — links will be created between businesses and education for research and development purposes, and lifelong learning will be developed.

5. meeting 21st century transport, communications and property requirements — connections within the region and to other regions within the UK and beyond need to be improved. Investment in key transport routes, including the A1, will improve links to markets outside the region, and better public transport will help to reduce the unsustainable growth in car use. Strategic investment sites will attract major investment into the region.

6. achieving the renaissance of rural and urban communities — there needs to be a balance between regenerating deprived urban and rural communities, and protecting and enhancing our environment, built heritage and distinctive culture. The renewal of urban and rural communities is linked to improvements in housing, skills and the environment. The Cultural Strategy for the North East provides a framework for future investments to develop cultural assets, and development at Gateshead Quays already provides a focal point in this respect.

2.27 The Regional Economic Strategy for the North East 2005, Consultation Document “Leading the Way”, was published in 2005. It set out how to deliver greater and sustainable prosperity to all of the people of the North East over the period to 2016. It centres on eight key drivers emerging from SHINE (Shaping Horizons in the North East), the underpinning economic development objectives for the region as it is currently evolving:

1. Leadership: to encourage strong, open and effective leaders who are committed to the future strategic direction of the region.

2. Enterprise and business support: to create an enterprising, risk-taking culture across all sectors underpinned by a fit for purpose support network.

3. Sectoral and global networks: to foster productive sectoral relationships within the region, and with other parts of the UK and the world.

4. Innovation and creativity: to establish an innovative, creative environment through collaboration and competition.

5. Skills: to develop a skilled, adaptable, healthy and motivated workforce which meets the present and future needs of the region.

6. Economic inclusion: to ensure a fully inclusive region which enables everyone to make a contribution and reduces inequalities.

7. Infrastructure and built environment: to invest in a sustainable future.

8. Image and cultural assets: to build upon the distinctive image of the North East, based on the people, places and cultural assets that can be celebrated and enjoyed within and outside the region.

2.28 The finalised “Leading the Way” Regional Economic Strategy 2006-2016 was published in September 2006. The strategy has three main themes – business (enterprise, business solutions and preparing for structural change), people (skills and economic inclusion) and place (strategic transformational regeneration; delivering a portfolio of high quality business accommodation; enhancing the region’s transport and ICT connectivity; and promoting, enhancing and protecting our natural, heritage and cultural assets), all of which are underpinned by the need for strong leadership.

2.29 In addition, the Tyne & Wear Economic Strategy “Leading the Way” (October 2004) outlines the TyneWear Partnership’s vision for Tyne and Wear for 2024 and the economic and cultural framework through which it can be achieved. It is built around four key themes:

• capitalising on creativity and culture;

• a learning sub-region;

• raising aspirations; and

• changing places.

NORTHERN WAY: TYNE AND WEAR CITY REGION DEVELOPMENT PLAN

2.30 The Northern Way Growth Strategy (September 2004) sets out within a vision up to 2025 about how the disparity in economic performance for the North of England (covering the North East, Yorkshire and the Humber and the North West) can be reduced by building upon assets and strengths. These include cultural and ethnic diversity, strategic east-west and north-south transport corridors and some of the country’s best universities. The ten point growth strategy is backed by a £100m growth fund and focuses upon eight city regions as the key to economic re-birth, including Tyne and Wear and Tees Valley. The Tyne and Wear City Region includes Gateshead, Newcastle, Sunderland, North Tyneside, South Tyneside, part of south Northumberland and part of north Durham. The Tyne and Wear City Region Development Programme was prepared alongside the Northern Way Business Plan (2005-2008) in June 2005.

2.31 The Tyne and Wear City Region Development Programme identifies the key drivers for growth, analysis of the labour market, locational priorities and key investment priorities for accelerating economic growth in Tyne and Wear City Region. The programme should integrate with the Regional Economic Strategy, the Regional Housing Strategy and Regional Spatial Strategy. It supports sustainable yet accelerated growth of the city region through polycentric development around a number of employment centres. These centres are connected to the labour market through flows of commuters from residential hinterlands and economic linkages.

2.32 Key areas of action of Tyne and Wear City Region Development Programme include:

1. supporting innovation through Newcastle Science City and Design Corridor and Design Centre for the North

2. creating sustainable communities in high quality places supported through cultural development and strategic employment sites including the Baltic Business Quarter and Bridging NewcastleGateshead

3. combating worklessness including the Pathways to Work Pilots in Sunderland, South Tyneside, Gateshead and County Durham that aim to tackle areas with the highest incapacity benefit claimant levels

4. raising levels of education and skills by tackling educational under-performance through science training and initiatives in schools and supporting further and higher education institutions

5. supporting local enterprise

6. improving connectivity through investment in the A1 and A19, rail, Port of Tyne and Project Orpheus; intelligent urban traffic management systems; additional routes from Newcastle airport; creating key transport hubs; and enhanced broadband provision

7. raising the quality of life

8. improving governance, strategic capacity and delivery through local, sub-regional and regional joint working.

2.33 City Region Development Programme was updated and ‘Building the prosperity of the Tyne and Wear City Region: A Business Case’ was published in June 2006. In addition, following a review of the Northern Way activity it was agreed in December 2006 to focus the pan-regional dimension on three priority areas: transport; innovation in industry; and private investment.

SUSTAINE: Achieving a Better Quality of Life – The Integrated Regional Framework for the North East.

2.34 This presents a shared vision for the region to enable all regional policy documents to share a common purpose in working towards, and achieving, a more sustainable future for the North East. The Sustainability Appraisal (SA) and Strategic Environmental Assessment (SEA) of this plan, referred to in paragraphs 1.14 to 1.16, used the sixteen sustainability objectives outlined in this document as its basis.

BUILDING–IN SUSTAINABILITY: A Guide to Sustainable Construction and Development in the North East.

2.35 This document provides practical advice to everyone involved in the development and planning process in the region on how construction and development can be approached as a potentially sustainable process. It can be accessed on the following website: http://www.buildinginsustainability.co.uk/ bis/usp.nsf/pws/Building-In+Sustainability+-+Building-In+Sustainability+-+Home+Page. It provides information and case studies on the following subjects:

• re-use of land and buildings

• minimising waste

• lean construction

• minimising energy in construction and use of buildings

• preventing pollution

• conserving water resources

• conserving and enhancing biodiversity

• providing transport choices

• involving communities and giving people choice

• designing with respect to create real places and to encourage diversity in activities and tenures.

2.36 Policies throughout this plan provide the context for the achievement of these aims and refer to the detailed guidance provided by this document.

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