Unitary Development Plans (UDP’s) were introduced by the provisions of the Local Government Act 1985 to replace the two-tier Structure and Local Plan system operating in metropolitan County Councils, which were abolished in 1986. The Plan requirements are now enshrined in the 1990 Town and Country Planning Act (as amended).  Each metropolitan district has to prepare a Unitary Development Plan which will include both strategic (Part I) and more detailed (Part II) policies. These set out the City Council's requirements for land use, improvement and protection of the environment and management of transport. The policies will act as guidelines for the control and promotion of physical development to the year 2006 and in some cases beyond that date, giving shape to the City's development far into the future.

This UDP is the first development plan to comprehensively include all the settlements incorporated in the City's boundaries. It puts forward co-ordinated policies relevant to the needs of the whole City.

It replaces the City's existing development plans which include the former Tyne & Wear Structure Plan (1981), the Tyne & Wear Green Belt Local Plan (1985), the Tyne & Wear Minerals Local Plan (1989), various local plans for parts of the City and the earlier Town Maps (where not superseded by more recent local plans).  Any policies or proposals in these plans that are still relevant have been incorporated in the UDP.

The UDP, as part of the corporate "City Strategy" has taken into account the needs and aspirations of all the Council's Committees.  It provides a framework for other policy statements covering a shorter time span, such  as the Transport Policies and Programme, Housing Strategy, Economic Development Strategy etc.  Account is also taken of the intentions of adjoining authorities.  It was prepared to accommodate of the aims and objectives of the Tyne and Wear Development Corporation (UDC), the Enterprise Zones (EZ’s) and the City Challenge area and to allow for the completion of projects commenced under these special regimes.

To ensure consistency between the five districts in the Tyne and Wear area, the Secretary of State for the Department of the Environment, published Strategic Guidance for the area (Regional Planning Guidance Note 1 April 1989).   The districts are required to take this document into account in the preparation of their UDP's and to ensure that policies and proposals are in conformity with it, as well as any other national guidance issued by the Government.  The length of time that has elapsed since the publication of this guidance, however, means that some of its recommendations have been overtaken by events and by the subsequent publication of other guidance, not least the Regional Planning Guidance for Northern Region in 1993 (RPG7).

The City of Sunderland

The City of Sunderland is the largest of the five districts in Tyne and Wear, with a population of some 294,500. (OPCS 1996 mid - year estimate) It includes the urban area of Sunderland, together with the former Urban Districts of Hetton-le-Hole, Houghton-le-Spring and Washington. In 1994 the Boundary Commission rationalised the City boundary, the main changes being the addition of land west of Shiney Row (Boundary Houses and Lambton Cokeworks) and loss of the Birtley Services (on A1M) and land west of Fencehouses.

Sunderland grew from a number of small settlements near the point where the River Wear enters the North Sea, to become a major commercial centre.  Its economy, once based on the coal mining and shipbuilding industries, is now much more diverse, with employment in a variety of manufacturing enterprises, including the Nissan car factory and associated suppliers and an increasing range of service activities.  Although traditionally an industrial area, it has a rich heritage and an environment which includes attractive features such as the River Wear Valley, the coastline and the west facing scarp of the East Durham plateau.

Urban Development Area - Until April 1998 parts of the City have been subject to the special planning regime of the Urban Development Area (UDA), where development control powers have been exercised by the Tyne and Wear Development Corporation (TWDC) although the responsibility for long term planning remained with the Council.  The Council has, however, in preparing its plans taken into account the proposals of the Development Corporation and ensured that they are reflected in the UDP.

Enterprise Zones - Following the closure of the shipbuilding yards, the Government established Enterprise Zones (EZ’s) at Castletown, Hylton Riverside and Doxford Park.  Within these zones, special financial advantages are given and outline permission for certain classes of development has been granted by Development Orders.   Providing that a proposal is included within those designations, no further permission is needed other than for prescribed details. The UDP proposals reflect the use types which have been identified.

City Challenge  The north-western part of Sunderland (north of the River Wear and between the A19 on the west and Newcastle Road on the east) gained City Challenge status in 1993 and has benefitted from enhanced investment in the area which has allowed an accelerated programme of improvements to the housing stock and to a wide variety of other community improvements. 

• quality
• choice
• access
• equality
• opportunity
• safety

These basic values and their related main objectives (see panel) underlie the Unitary Development Plan

The Environment Department Mission Statementsummarises concisely the overall objective of the Department, placing specific emphasis on some of the qualities referred to above and adding others.  It reads;

The UDP is being prepared at a time when major changes locally, nationally and globally are re-shaping our perceptions for the future, for example:-

• the emergence of the single European Market, the democratisation of eastern Europe with its potential for greater trading links to the ports of the North East, and the possible benefits arising from the opening of the Channel Tunnel;
• the upturn in the industrial future of Sunderland, reflected in the grant of City status and the advent of major national and international investment through Nissan, the UDC and EZ initiatives which have enhanced the City's potential for new development;
• the trend towards public/private sector partnerships to secure the implementation of major projects;
• the enhanced awareness of environment and conservation issues and increasing requirements to plan in a 'sustainable' (see para 1.29) manner, particularly so as to limit pollution and the loss of open land.
• a society looking for additional outlets for its leisure time and its increasing prosperity.

Resources

In preparing the Unitary Development Plan the City Council is required to take into account the likely availability of the resources needed to implement its proposals.  Whilst the availability of financial resources can never be predicted with any certainty, over the period of the Plan the level of funding needed to implement most of the proposals is broadly in line with recent levels of investment.  Finance for development proposals, environmental and infrastructure enhancement comes from a variety of private and public sources and, increasingly, from a combination of the two.  Thus, in addition to the Council's own spending, which is likely to continue to be constrained, finance will be attracted  through various Government initiatives such as The Single Regeneration Budget, Derelict Land Funding, the various Lottery Funds, Countryside Commission Grants etc. and through European Community monies.  The Enterprise Zones will continue to attract further private investment and there will be the continuing expenditure by established firms, enterprises and individuals as they pursue their own activities.  In this respect, where development cannot be implemented without imposing additional requirements on the public sector, the "Planning Obligation" procedures will be used to ensure that the developer either carries out the works needed or makes an appropriate contribution.

Certain major projects however will require special funding provisions.  Examples of such schemes are the extension to the Tyne and Wear Metro system, the new Wear Bridge and hospital or University development projects.  The promoters of these schemes will have to secure funding for them in competition with other projects throughout the Region and the Country as a whole.

In Strategic Guidance, the Tyne and Wear districts were requested to give consideration to the possibility of designating Simplified Planning Zones, which give a similar planning regime to that in Enterprise Zones, but without the financial incentives.  It was considered that such designations were unlikely to be advantageous in Sunderland in that the introduction of yet another planning regime would have only served to confuse an already complicated pattern; worthwhile projects for economic regeneration have never been unnecessarily impeded by the normal operation of development control procedures in this authority.

Government advice in PPG12 concerning Development Plans has now formalised the requirement to ensure that appropriate consideration is given to the environmental implications of the policies and proposals included in the Plan.  It has always been the case that local authorities have had to balance the environmental effects of proposals against other benefits and the Unitary Development Plan requires further such judgements to be made.  Every effort has been made to ensure that, where choices have to be made, sufficient information on their effect has been included in either the explanatory text or the justification to allow appropriate consideration.

The UDP translates the City Council's vision and objectives into a statement of policy on the use of land, on transport and on protection and enhancement of the environment.  It will generally look forward to 2006.

The policies in the Plan provide a VISION for future generations; give FLEXIBILITY to allow for those changes and opportunities which cannot be foreseen; promote a guideline of QUALITY which will be pursued through the Council’s own works and through the development control policies; and attempt to ensure a BALANCE so that no one aspect dominates, since many matters are important to achieve a well-rounded future for the City's residents.

A strategy for the future of Sunderland ought therefore to aim to:-

• reduce the net level of out-migration to zero by the end of the plan period, principally through policies for housing and economic development. (STi)
• provide sufficient employment opportunities in both range and number to allow the City's residents to find appropriate work without being forced to commute to other towns or move away. (STii)
• provide a sufficient number, diversity and quality of homes to accommodate all who wish to live in the dwelling of their choice. (STiii)
• exploit the significant benefit to the local economy of higher education provision in the City. (STiv)
• have a sufficient range of social, educational, cultural and recreational facilities within the City to satisfy the requirements of its residents and visitors. (STv)
• assist in mitigating the adverse effects of development on the health and safety of citizens. (STvi)
• ensure that any special needs of those residents of the City who experience social, economic, racial or physical disadvantages are taken into account in all development and regeneration proposals. (STvii)
• protect and enhance the best features of both the built and natural environment. (STviii)
• ensure that the sum total of planning decisions does not deny future generations the best of today's environment (“Sustainable development”).  Development which has impact on the environment which may be irreversible or very difficult to undo should be treated with particular care (“the precautionary principle”). (STix)
• 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. (STx)

It is recommended that development plans should include not only a set of guiding principles, but a geographic description to indicate broadly how new change is to be accomplished.  In line with national guidance on planning and transport (PPG13) the Plan should co-ordinate policies for transport and other development so as to reduce the need to travel, especially by car. This is particularly aimed at reducing atmospheric pollution.  Reducing the need to travel will involve consideration of the distribution of housing, employment and social facilities.

The spatial strategy for Sunderland takes account of the existing geography and infrastructure of the City, not only for the Plan period, but also seeking to ensure the City's long term sustainability.

The Plan aims to:

• provide a range of opportunities which, in the long term, could make broad areas of the City largely self sufficient for the needs of their residents.  Where there is a need to travel cross - town, main foci of movement should be linked by adequate public transport facilities.(STxi) 
• ensure that major traffic generators are located within easy access of the strategic network of routes.(STxii)

The broad development of the City should be related to:-

• the access opportunities provided by the A19 corridor (mindful of Green Belt policy) (STxiii);
• the opportunities in South Sunderland created by the existing transport system - road and rail -and their improvement; and to the maximisation of use of community facilities and other infrastructure (STxiv);
• the Shiney Row/ Houghton-Hetton/ Easington Lane corridor, where linear public transport routes could be developed in association with community and other infrastructure, linking with the economic development opportunities of Murton (STxv);
• the need to protect urban green spaces, particularly the open breaks separating distinct communities. (STxvi)

Sustainable development is promoted through framework policies, which apply across all topics and areas, seeking to balance change and conservation, making best use of all resources, reducing reliance on car use, and striving to avoid serious damage to the Environment.

• The UDP seeks to ensure that all decisions on development matters will take into account the sustainability of the proposal. (Ri)
• The need for major new public investments should be minimised by making full use of existing and proposed service and social infrastructure, ensuring that new development takes advantage of spare capacity where possible. (Rii)
• The UDP aims to promote the most efficient use of energy in all developments. (Riii)

The scope of objectives and policies for Economic Development seeks to promote the City as an "advanced manufacturing centre" and as a regional centre of excellence in higher education provision.  They aim to diversify the economy by protecting and providing land to meet overall strategic and local office, industrial and storage requirements. This takes into account distribution of sites to improve access by the potential workforce, consideration of the locational needs of business and the most appropriate links with the transport network. The protection of the amenity of residential, shopping, rural and other areas from the adverse effects of certain economic developments is of great importance, as also is maximising the tourism potential of the City.

• The UDP will build on the City's developing role as the "advanced manufacturing centre" of the North east and as a regional centre of excellence in Higher Education, whilst encouraging the continued growth of local business and the service sector, particularly in offices and tourism related businesses. (ECOi)
• Employment opportunities will be located to make greatest use of access for both business development and the workforce, whilst not detracting from the local environment. (ECOii)
• The UDP should promote the prestige and attractiveness of the City to provide the basis for developing its heritage and tourism potential. (ECOiii)

With the decline of traditional industries such as coal, shipbuilding and heavy engineering, a new, more broadly based economy is developing which builds on existing strengths - particularly in engineering (e.g. automotive components) and white collar services (e.g. the University).

• 1215ha of land is to be retained and improved for business and industrial use.
• almost 30ha of new land is allocated principally at Doxford International and South Ryhope.
• existing offices will be retained and new floorspace is proposed chiefly in the City Centre.

Measures to ensure full use of the existing stock of housing, modernised and in attractive surroundings, are supplemented by allocations of land for all types of new housing in a wide range of locations. Special needs of minority groups are catered for.  New development will be expected to be in accord with proper standards of layout and design and provide open space and other community facilities resulting from the housing provision.

• A range of attractive new housing opportunities should be provided, distributed so as to maximise choice of location (subject to environmental and infrastructure constraints), and to assist the upgrading of particular areas. (HOi)
• Efforts will continue to be made to enhance existing residential areas and improve the overall conditions of dwellings. (HOii)

• provision is made for 15,000 additional dwellings in the period 1988 to 2006, thereby making available a wide range of locations and house types, including special needs housing, e.g. for elderly, disabled or single people and those on low incomes.
• new housing is proposed on nearly 200 ha of land, with some 40% being on recycled land.
• new housing sites are located throughout the City, numbers of dwellings being distributed as follows:
  • Urban South21%
  • Southern Periphery38%
  • Sunderland North13%
  • Washington6%
  • Houghton-Hetton23%
• over 20 ha is reserved for 'executive' housing.
• the Plan encourages schemes to improve the condition of existing houses - both public and private - together with their surroundings.  These include 17 Council estates to be 'restructured', 7 to be subject of major environmental improvements and environmental works to 28 older private areas.

Theframework for shopping emphasises the City Council's commitment to supporting and enhancing existing shopping centres. Criteria are established against which new developments will be judged.  In general new shopping provision will be associated with existing centres rather than free-standing in separate locations.

• The shopping service should be accessible to all residents of the City.  Developments should  consolidate and enhance the shopping role of the City in Tyne and Wear and North Durham. (SOi)
• The roles of the three main centres of Sunderland, Washington and Houghton should be recognised in meeting the shopping, leisure, civic, cultural and business needs of the community. (SOii)
• The continuing vitality and viability of existing shopping centres within the City and their contribution to economic regeneration will be sought.  (SOiii)

Emergent trends in retailing are leading to pressures on shopping activity in the City.  These have an impact on both the demand for land and the need to protect existing centres.  The policies will:

• promote the continued development of the City Centre as the strategic centre of the City, primarily by construction of Phase 2 of ‘The Bridges’ shopping centre (23,000 sqm gross) and by making other development sites available.
• promote further development at ‘The Galleries’ Washington, and Houghton Town Centre by making sites available.
• encourage retail/ environmental improvements to the 9 centres including those referred to above, which form the main elements of the City’s shopping hierarchy; improvements to include enhancement of access, servicing and car parking.
• allow further convenience goods retail development where it reinforces existing centres or meets a local deficiency in service; new floorspace could be provided at Houghton, Hylton Lane/Washington Road, and Hedworth Terrace.
• allow comparison goods floorspace retail development from certain sites, including extensions to the Sunderland Retail Park, the Peel Centre, and at Armstrong.

This section brings together policies relating to Health, Education, Social and Cultural facilities. Policies are linked to the known strategies of the various services, in particular those relating to hospital provision and the growth of the University. They seek to reserve sites essential for specific developments to proceed and stress the need to re-use for community purposes land surplus to the requirements of the agencies.

• The Unitary Development Plan will seek to ensure that the City's residents have access to an appropriate range of community, health and education facilities/services. (CFOi)
• It will be necessary to ensure that where new housing developments are built, they either support existing facilities, or else additional provision is made at the earliest opportunity to ensure that no one is disadvantaged by lack of access to these services. (CFOii) 
• An effective system of pre-school, school, college and community provision has been developed, but provision needs to be made for more facilities to meet the needs of the Children Act, the continued replacement of old and sub-standard premises and for appropriate provision in areas of new development.  Emphasis should be placed on projects which make the most effective use of resources, secure greater participation in education after statutory schooling and promote links with industry, employment and urban regeneration. (CFOiii)
• The UDP will support the provision of appropriate sites for the continuing development of Sunderland University, ensuring that adequate standards of parking and landscaping are met.  The Planning Authority will work closely with the University regarding the provision of student accommodation in appropriate locations. (CFOiv)
• The Unitary Development Plan will support the provision of appropriate sites for the continuing development needs of the health/ welfare services, ensuring that these facilities are distributed so as to be accessible to all patients and that adequate standards of design, landscaping and car parking are met. (CFOv)
• The Unitary Development Plan will seek to enable the provision of a wide range of high standard community facilities to meet the requirements of local and central public authorities, religious, cultural and ethnic organisations in order to enhance the quality of life for all residents. (CFOvi)

• the Plan encourages the re-use of surplus public buildings for other community uses and promotes the dual use of school facilities;
• the Plan allows for the provision of a nursery place for every child in the City whose parents wish it, mostly on existing educational sites;
• sites for 13 new or replacement primary schools are identified, some on existing sites;
• the University is supported in its plans to consolidate onto two campuses - Chester Road and St. Peters Riverside, providing for some 20,000 full and part-time students by 2004/ 2005;
• the Health Authority's plans are assisted; these include concentrating hospital provision at the Sunderland Royal Hospital, providing additional local community health and psychiatric services in three locations as well as providing for long term rehabilitation care in a new unit in South Sunderland at Ryhope (12 ha.);
• six new or replacement community centres are proposed.

Standards of provision of sports facilities form the basis for policies to remedy deficiencies.  The need for amenity space is related to achieving a hierarchy of provision to make such spaces accessible to all City residents. The protection of existing public and private open spaces receives high priority, whilst other policies seek to enhance regional, countryside, river and coastal recreational facilities, though not at the expense of environmental quality.

• A wide range and high standard of recreational, sporting, cultural and community facilities should be encouraged to enhance the quality of life for the City's residents and visitors.  These should respect the character of the urban open spaces, the rural landscape/ economy and the sensitive sites within them. (LOi)
• Opportunities for the public to enjoy the countryside and its wildlife should be improved and extended consistent with protecting agricultural areas and sensitive sites. (LOii)

Changes in lifestyles and the increasing popularity of new sports affect the demand for land and buildings;

• new or improved playing fields are proposed in 11 locations;
• 35 new and improved sites for District, Local and Neighbourhood open spaces are proposed;
• new or replacement children's play areas will be provided in over 50 locations;
• improved access to the countryside is planned by a variety of measures;
• Country Parks will be created at Herrington and Farringdon, totalling some 210 ha;
• The continued growth of regional leisure facilities will be encouraged at specific locations  eg. Claxheugh, Hetton Lyons and Silksworth recreation complexes and through policy controls for the development of new golf courses.

The adverse environmental effects of development and vehicle use are controlled by policies which seek to minimise air pollution, noise and other problems, whilst complementary policies promote the use of renewable energy.  The worst environments are proposed for upgrading; in particular the elimination of dereliction, a major blight on the landscape, is sought.

• Land use and environmental policies should support efforts to reduce all forms of polluti