Tameside Unitary Development Plan


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Part 1 INTRODUCTION

The Unitary Development Plan (UDP) is a land use planning document which the Council is required to produce by law, adopt and keep under review. Its purpose is to provide a framework for development and conservation over the whole of the Tameside area, to set out the main considerations on which planning applications in the Borough are determined, and to guide land use decisions by the Council and other agencies.

The Need for Review
The first Tameside UDP was adopted by the Council in September 1996, at which time it superseded all previous development plans. Maintaining an up to date and relevant development plan is important if the planning system is to be dynamic and effective, and if decisions on planning applications are to continue to be made in accordance with the plan rather than on an ad-hoc basis. Although there is no strict end date for UDP policies (except for housing land requirements which run until mid-2001) the Government expects that development plans should be reviewed at least once every 5 years, depending on local circumstances.
Although many of the policies and proposals in the superseded plan were working well or are still important for the future of the Borough, others have either been implemented or overtaken by events, or have proved to be unnecessary or impractical. National planning policy guidance has continued to evolve since the UDP was first drawn up, especially the importance attached to sustainability and urban regeneration, and Tameside's own conditions, problems, needs and priorities have also changed in some respects. The previously adopted UDP is also perceived by many as unnecessarily long and complex and sometimes overly prescriptive.

The Form of the Review

The extent of the changes which need to be made to the previously adopted UDP are such that a replacement rather than an altered plan is appropriate. Many of the policies which have been inherited from the previously adopted UDP have been shortened or refined to try to make them clearer and more effective, and the proposals map has been simplified. The period covered by the replacement plan will be extended through to 2011.

Consultations
In line with Government advice, pre-deposit consultations for the plan review have been based around key issues. An Issues Paper was published by the Council in July 2000, summarising the guidance, strategies and local circumstances influencing the review and putting forward key themes and ideas on how the current plan might be changed. This was widely publicised and copies or notification of its availability sent directly to a large number of organisations thought likely to have an interest. In preparing the draft plan the Council has taken into account the comments received from the 68 individuals or organisations that responded to the Issues Paper.
The first deposit draft of this replacement UDP was placed on deposit between 18th June and 30th July 2001. Written submissions were received from 149 different organisations and individuals during this six week period, containing 517 duly made objections and 112 representations of support. The Council has considered each of these submissions and numerous changes to the plan have been introduced with a view to resolving objections wherever possible. Other people who might be affected by these changes had the opportunity to object during the deposit period for the revised draft, which ran from 15th March to 26th April 2002. 47 new, duly made objections were made to the changes, along with 36 representations of support, whilst 291 of the original objections were eventually withdrawn.
The outstanding objections were heard by an Inspector appointed by the First Secretary of State, at a public local inquiry which took place between 29th October and 8th November 2002 and which formally closed on 29th January 2003 after all written submissions had been received. The Inspector's report was received by the Council on 24th April 2003 and published on 18th June. The Council has considered the Inspector's recommendations, took a decision on each, and deposited a list of the modifications in October/November 2003. Objections to these were considered by the Council and as a result a further set of modifications was placed on deposit in July/August 2004. Objections to these were considered by the Council on 5th October 2004 where the decision was made to adopt the plan without further modification. The replacement plan therefore was adopted on 17th November 2004.

Format of the Plan
It is a legal requirement that the UDP is split into two parts. Part 1 comprises, along with this introduction, other relevant policies and strategies, a strategic overview of the Borough, themes and objectives for the new plan, and the Council's general policies for the development and use of land. Part 2 contains the more detailed policies and proposals for the development and use of land, and in particular those which will form the basis for deciding planning applications. It also includes reasoned justifications for both the Part 1 and Part 2 policies, which often also contain background information about relevant local circumstances. Throughout the document policies are distinguished by use of bold typeface, justifications by italic typeface, other material by normal typeface and headings by bold italic typeface. Part 2 is completed by the proposals map inside the back cover, showing site-specific proposals and area based policies on a geographical base.


OTHER RELEVANT POLICIES AND STRATEGIES
In preparing this replacement plan the Council has taken into account both national and regional planning policy guidance issued by the Government, and relevant local strategies which have been established by the Council and its partners, including the Vision for Tameside, the Community Plan and the Economic Development Strategy.

National and Regional Guidance
National policy is set out in Planning Policy Guidance Notes (PPGs), the main principles of which are referred to where appropriate in the reasoned justifications to the policies of this plan. There is a programme to replace these with Planning Policy Statements but at the time of printing this document only five have been published. The latest version of Regional Planning Guidance for the North West (RPG13) was published by the Government Office for the North West in March 2003. This has now become the Regional Spatial Strategy (RSS) and will in future be referred to as such, providing a framework within which development plans and local transport plans are prepared.
The overriding aim of RSS is to promote sustainable patterns of spatial development and physical change, with the region's economic, social and environmental interests being advanced together and supporting each other. The Core Development Principles of the RSS are economy in the use of land and buildings, enhancing the quality of life, quality in new development, promoting sustainable economic growth, competitiveness and social inclusion. The Spatial Development Framework establishes that the North West Metropolitan Area is to be the focus for new development and urban renaissance resources, with first priority given to Liverpool and Manchester city centres and their surrounding inner areas. Within the other parts of Greater Manchester and Merseyside in the North West Metropolitan Area, priority will be given to development complementary to regeneration of the areas above, which will also enhance the overall quality of life within metropolitan towns and boroughs where there are concentrations of social, economic and environmental problems. Other key policies in the RSS are referred to as appropriate elsewhere in this plan.

Sustainable Development
The Government expects that the planning system will make a substantial contribution to the achievement of sustainable development by regulating the use of land, one of our most precious environmental assets. Sustainable development is most often defined as: "Development that meets the needs of the present without compromising the ability of future generations to meet their own needs". In its Strategy for Sustainable Development for the UK "A Better Quality of Life" published in May 1999, the Government set out four objectives:
	Social progress which recognises the needs of everyone. Effective protection of the environment. Prudent use of natural resources. Maintenance of high and stable levels of economic growth and employment.
Government guidance advises that a sustainability appraisal should take place as part of the plan making process, although this is not a mandatory requirement. The Council did commission an appraisal from consultants but was not satisfied with the approach and decided to continue without it rather than delay the process. The Inspector considered this issue at the public inquiry and was relatively content that an appraisal would not find any fundamental flaws in the overall approach of the plan in seeking to achieve its sustainable objectives. The Council remains committed to the principle of sustainability appraisal.

Tameside Community Strategy
"We want Tameside to be a good place to live, work and play for everyone now and in the future. We want it to be a place where people of all ages and backgrounds feel at home and able to get involved in the life of the community, where they can contribute to a prosperous local economy, feel safe and healthy, and take active responsibility for the environment in which they live."
The Community Strategy 2003-2006 has been produced by Tameside's Strategic Partnership, which includes the Council and other key public organisations such as the Police and the health service, along with the voluntary and community sector and the business community. During 2002 the people of Tameside were asked what their priorities were for the Borough and as a result 6 key themes have been identified which the Partnership will promote over the 3 years of the strategy. The UDP is among a number of means by which these aims can be achieved by the Council and its partners. The themes are:
	Supportive communities A safe environment A prosperous society A learning community A healthy population An attractive borough

Tameside Economic Development Strategy
This is the working document of the Tameside Economic Forum, which aims to promote an understanding of the economic challenges and opportunities facing Tameside and to identify key strategies and actions to meet these. Much of the more local economic, environmental and community achievements in the Borough over recent years have been secured through partnership working in regeneration areas, including the Hyde and Ashton Renewal Areas, the Tame Valley, Hattersley, and Stalybridge Town Centre and it is anticipated that this approach will continue to be beneficial.

OVERVIEW OF THE BOROUGH
A number of crucial developments have taken place in Tameside since the first UDP was adopted in 1996 and more are in the pipeline, yet in some other respects there has been minimal change in the Borough during this time.

Employment and Transportation
Unemployment has been below national, regional and Greater Manchester averages for several years, but the local economy is very fragile and dependent on mature or declining industries, and there are high levels of deprivation in some areas. Older industrial premises outside the core employment areas have continued to close and their sites redeveloped for uses such as housing or retail. The M60 has finally been completed through Tameside, radically improving the Borough's links to the national motorway network and removing north-south through traffic from less suitable roads.
Stage 1 of the Ashton Northern Bypass from the A 635 at The Snipe to the A 627 on the west side of the town centre is now completed and fully open. The extension of the Metrolink tram network from Manchester city centre to Ashton is still a proposal at the time of the printing of this document but funding is proving elusive. The Mottram to Tintwistle Bypass is in the Highway Agency's Targeted Programme of Improvements for completion in 2008, subject to statutory procedures. The take-up of employment land and leisure developments on sites has increased in the last few years, especially in the Denton area close to the M60 intersection. On Ashton Moss, retail development and leisure units have been completed with sites under construction elsewhere across the site.

Housing and Regeneration
New house building rates in the Borough are lower than in the late 1990's and Government projections forecast a slight fall in the Borough's population but the rate has increased again recently. Also, much attention has been given recently to removing difficult to let social housing and making the stock more suitable for current requirements. Much housing built since 1996 has been provided on brownfield sites but recent rates have been affected by the development of two large, long allocated greenfield sites recently.
Good progress has been made on regeneration in certain areas of the Borough with the help of various sources of funding. There are a still a number of outstanding opportunities to improve the usefulness and appearance of key brownfield sites however, and it remains difficult to secure the future of some prominent historic buildings. The increased priority given to urban regeneration and brownfield development has raised concerns about the need to green the urban area and avoid town cramming.

Town Centres and Shopping
The established town centres of Tameside remain the main focus for shopping and related activities, with enhancements taking place more recently in Ashton and Stalybridge, whilst local centres and parades are often fragile. New food /convenience stores on the edge of town centres have been developed with schemes at Ashton, Hyde, Stalybridge, Droylsden and Denton. Out-of-centre non-food shopping in Tameside is mainly confined to a single, large retail park at The Snipe between Ashton and Audenshaw.

Countryside, Open Land and Recreation
Pennine Fringe character area. Agriculture is of marginal viability, which may present a threat to the long term upkeep of the countryside. The few economically working farms are mostly limited to dairy grazing and silage production, and some former farms are now essentially residential enclaves. In the extensive urban fringe there is pressure for farm diversification, including residential barn conversions, stables / riding schools, kennels and catteries, transport or waste transfer depots, caravan storage and inert waste tipping, along with conflicts arising from greater recreational demands.
The great majority of the countryside and other adjacent open land in Tameside forms part of the Greater Manchester Green Belt. This has been successfully protected since adoption of the original UDP, and the designated green wedges /wildlife corridors, other areas of urban green space and nature conservation sites also largely remain as they were, although individual sites come under pressure from time to time. A great achievement in recreational terms has been restoration of the Huddersfield Canal on its original line through Stalybridge town centre, which along with work elsewhere means that navigation is now possible from Greater Manchester to West Yorkshire. Modest progress has been made on improving land for informal recreation and enhancing the landscape through tree planting, but there is potential for much more to be achieved. The minerals, waste and pollution control scene has been fairly stable up to now but changes may be around the corner as recent legislation and directives start to take effect, such as in waste and air quality management.

THEMES AND OBJECTIVES FOR THE NEW PLAN
Sustainable development is the single most important principle of the replacement UDP and one which finds expression throughout the plan. However, this does not mean that built development is entirely unacceptable on greenfield sites if the need for a proper balance of employment growth and environmental protection requires the use of a limited amount of such land in accessible locations. The replacement UDP in fact proposes very little change to the shape and extent of the urban and countryside areas of Tameside over what is still being implemented on the basis of the original plan adopted in 1996. It also carries forward many of that plan's key policies albeit with some changes of emphasis.

Quality Jobs and Good Access
A key theme of the plan is that attracting new, quality jobs into the Borough and securing the future of major existing employers must continue to be the priority, to offset expected further losses in mature industries and to diversify opportunities for local people. This will be achieved primarily through development of the strategic employment site alongside the M60 and Ashton Northern Bypass at Ashton Moss, along with large scale redevelopment for offices in the Henry Square area on the edge of Ashton town centre. Support for further development within "Development Opportunity Areas" and established employment areas, and greater flexibility to accommodate local employment initiatives, will also contribute to this priority. The proposed transportation developments should both encourage economic development and, in association with other policies, help to reduce traffic congestion.

A Stable Population
The Council is very concerned about the implications for the Borough's economy and services of a population decline as most recently predicted by the Office for National Statistics. The plan therefore endorses the Draft Regional Planning Guidance requirement for the number of new dwellings to be constructed in the Borough, as this exceeds what would be needed to meet predicted household growth and will be more likely to result in a stable population.

A More Attractive and Enjoyable Borough
Tameside must be made a more attractive place in which to live, work and enjoy leisure, both for the benefit of existing residents and to help boost the local economy. This will mean more greening of the urban areas, improvements to the management and appearance of the urban fringe, protection and enhancement of the natural environment, higher quality design in development schemes, and choice in the housing market. Policies support an increase in the opportunities for sport, recreation and leisure in the Borough, subject to safeguards, and also try to ensure an accessible, safe and healthy environment.

Regeneration in the Urban Areas
Regeneration should continue to be facilitated and promoted in the older parts of the urban area, and derelict, under-used or unsightly sites brought back into use, redeveloped or refurbished, so as to improve the environment and enhance their contribution to the local economy. This should be aided by continued support for the role of the several town centres in the Borough, and the attention given in the plan to the potential of Development Opportunity Areas. It will be important at the same time to conserve the Borough's townscape heritage and to retain and promote local identity in the built environment.

Protection of Green Spaces
The impetus for regeneration should be assisted more generally by continued protection of the Green Belt, and by ensuring that greenfield sites are only developed for housing if brownfield supply, including windfalls, becomes insufficient to maintain an adequate supply. Critically, the network of green open spaces which help to break up the urban areas and meet local recreational needs must continue to be protected, and the policies concerned with this are strengthened. Town cramming must be avoided.
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PART ONE POLICIES

1.1	Capturing Quality Jobs for Tameside People
To counteract a continuing decline in the Borough's established employment base and to increase the earnings potential of work in the area, measures will be taken to create and maintain a healthy and diverse local economy and to attract quality jobs. This will recognise, among other things, the economic development potential of the Borough's proximity to Manchester Airport.
This will include making land available for inward investment on key accessible sites, facilitating the retention of indigenous and expanding businesses, providing opportunities for new employment initiatives throughout the Borough, and enabling the safe and efficient movement of freight.
In addition to the key sites, attention will be given to the opportunities for employment growth provided by town centres and other previously developed land.

1.2	Maintaining an Integrated Transportation Strategy
The transportation infrastructure of the Borough will be maintained, managed and where necessary improved as part of a balanced transportation strategy and in accordance with the objectives of the Local Transport Plan for Greater Manchester.
The aim will be for the Borough's transport system to become increasingly sustainable and less environmentally damaging whilst providing safe and efficient access both to/from and within the Borough and assisting investment and employment.
The Council will consider the interests of all types of road users, including public transport, when deciding priorities for transport investment.

1.3	Creating a Cleaner and Greener Environment
To enhance the appearance of the Borough for the benefit of existing residents and to help attract new investment, all developments must achieve high quality design which is sensitive to the character of the local area, particularly in the relationship between buildings, between buildings and adjoining spaces, and in associated landscaping. This will be particularly important in achieving higher density housing development.
The landscape quality and nature conservation value of the Borough will be enhanced where possible, particularly in the urban fringe and river valleys, further greening will take place in urban areas and woodland planting will be facilitated where not injurious to nature conservation.

1.4	Providing More Choice and Quality of Homes
Sufficient land will be made available for housing development to help maintain the Borough's population at around its current level and meet requirements established by the Regional Planning Guidance process, whilst ensuring that Government targets are met.
A wide variety of types of housing will be required, to meet the needs of the whole community and to encourage further investment.
Annual monitoring of the on-going housing land supply, the uptake of commitments and the clearance of existing dwellings will be undertaken by the Council, so as to assess the extent to which the objectives of this policy are being achieved and indicate any need for plan review.

1.5	Following the Principles of Sustainable Development
In promoting sustainable development and quality of life as guiding principles of the plan, the need for economic development and new homes will be balanced against the importance of protecting and enhancing the environment.
This will be achieved, in particular, by giving priority to the use of previously developed land in the most efficient way including the re-use of empty or underused buildings, enabling higher densities where consistent with environmental quality, conserving cultural and natural resources, minimising the need to travel and facilitating the use of public and non-motorised means of transport.
Developments generating large numbers of trips will be concentrated in or adjoining town centres wherever possible, and where suitable sites are not available they will be located in areas well served by public transport.

1.6	Securing Urban Regeneration
Regeneration of the Borough's urban areas, where in need, will be secured through neighbourhood renewal, redevelopment or greening of brownfield sites, reclamation of derelict land, bringing forward development in under-used and unsightly areas, strengthening the role of town centres, re-use of vacant or underused buildings through conservation led schemes, improving the quality of design, facilitating improved public transport, and protection, enhancement and expansion of urban green spaces.
To stimulate urban regeneration, priority will be given to the reuse of previously developed land and buildings. Unallocated greenfield sites will not be released for development whilst sufficient, suitable, previously developed land and buildings are available within the urban area.

1.7	Supporting the Role of Town Centres
The role of Ashton-under-Lyne and the other town centres as the focal points for retailing, leisure, entertainment, administrative, commercial and cultural activities in the Borough, and for office and other employment, will be protected and enhanced, and their strength, vitality, diversity and character will continue to be improved to ensure access to a full range of facilities for the whole community.
This will be achieved by improving access, safety and environmental quality where necessary, safeguarding local identity, allowing flexibility to adapt to changing requirements, providing opportunities for development where needed, and ensuring that large scale retail and leisure schemes comply with the sequential test.

1.8	Retaining and Improving Opportunities for Sport, Recreation and Leisure
A wider range of cultural, leisure and recreational opportunities will be developed in the Borough, with the emphasis on local accessibility to smaller scale facilities and on locations in or adjacent to town centres for larger scale built leisure.
The existing pattern of parks, play areas, playing fields and informal recreation areas within the built up area will be protected and their accessibility, quality and appearance enhanced where possible. Opportunities will be taken through Council programmes, area regeneration initiatives and housing development proposals, to improve provision in areas where there are deficiencies in particular types of sports or recreation.
The river valleys, country parks and other areas of accessible countryside will continue to be conserved, managed and improved, in order to realise their potential for informal recreation, nature conservation and education / interpretation.

1.9	Maintaining Local Access to Employment and Services
To reduce the need to travel longer distances from outlying areas and to help create vitality and diversity in predominantly residential areas, opportunities will be taken wherever possible to retain and increase the availability of local employment, shopping, leisure and community facilities throughout the Borough,.
Mixed uses will be developed, where this can be achieved without causing environmental or traffic problems or conflicting with the role of town centres.

1.10	Protecting and Enhancing the Natural Environment
The natural environment, countryside character and biodiversity of the Borough will be safeguarded, by taking account of nature conservation considerations and their importance internationally, nationally or locally whenever land use planning decisions are made.
Particular attention will be given to protection of national and Greater Manchester Biodiversity Action Plan priority habitats and species, moorland, wetland, woodland, hedgerows, dry stone walls, canals, reservoirs and ponds, and to avoiding adverse effects on wildlife species which are protected by law.
Opportunities will be taken wherever possible to enhance the value of land for nature conservation, particularly within wildlife corridors, river valleys and the urban fringe.

1.11	Conserving Built Heritage and Retaining Local Identity
The cultural heritage, historic character, distinctiveness and local identity of buildings and areas within the Borough will be conserved.
Extension, conversion, refurbishment and, where necessary, redevelopment schemes involving historic buildings and areas must be sensitive to and where appropriate enhance the character of their surroundings.


1.12	Ensuring an Accessible, Safe and Healthy Environment
Development schemes must be designed to provide an environment that is accessible to people with sensory impairment or restricted mobility, to incorporate traffic calming measures wherever necessary, and to discourage crime and anti-social behaviour in consideration of Section 17 of the Crime and Disorder Act 1998 and the Tameside Crime and Disorder Reduction Strategy.
All forms of pollution arising from new developments must not exceed acceptable levels for the surrounding area and conflicts between industrial or commercial operations and the enjoyment of a clean and quiet residential environment avoided.

1.13	Meeting Obligations on Minerals, Waste and Energy
The Borough will make an appropriate contribution to regional requirements for the working of minerals, allow sustainable waste management facilities to be developed as part of an integrated waste management strategy for Greater Manchester, and facilitate the supply of energy from renewable sources, subject to satisfying environmental criteria for the surrounding area.




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