Sandwell UDP

2.1 This UDP Review has been prepared within the framework set by national planning policy. The Government prepares Planning Policy Guidance Notes (PPGs) on numerous topics. PPG 1 "General Policies and Principles” published in 1997 outlines the Government's approach to planning. In particular it highlights the three key aspects of:

2.2 In terms of sustainable development the Government's strategy identifies that it means meeting four objectives at the same time, in the UK and the world as a whole:

2.5 The PPGs set out the policy framework within which local planning authorities are required to draw up their development plans and take decisions on individual planning applications to secure these objectives. Within the subsequent sections there is more detailed assessment of the relevant PPGs and the national policy context that they set.

2.6 In particular PPG 1 refers to the importance of urban regeneration and reuse of previously developed land as supporting objectives for sustainable development.

2.7 Mixed-use development is identified, especially in relation to town centres but also elsewhere, as a means of creating vitality and diversity and reducing the need to travel. It can be more sustainable than development consisting of single uses. The concept of mixed uses is addressed in the Plan, particularly in relation to the Borough's various centres. Urban villages are normally appropriate to large sites of which there are very few in the Borough, but the concept is applied in certain locations especially in relation to proposals to redevelop areas immediately to the south of West Bromwich Town Centre (the Lyng).

2.8 Perhaps the key issue facing the implementation of planning policy, especially in an area such as Sandwell, is that of design and in particular how to encourage good design. This is an issue that the Urban Taskforce has raised and that must be addressed not only in the Plan but also in the subsequent decision making process. The policies in the Plan are intended to establish the principles required for good urban design, but this will need to be developed through supplementary planning guidance including not only policy areas, but also specific site briefs.

Regional Planning Guidance

2.9 Sandwell lies at the heart of the West Midlands conurbation and is the most urbanised of the seven metropolitan districts. Policies and proposals in one area may have significant effects in surrounding areas. Thus, it is important to recognise the need for Sandwell to work closely with the Councils and other agencies operating in Birmingham and the rest of the Black Country. The districts and surrounding shire counties already have an excellent record of collaborative working which has helped provide the strategic framework through the production of advice to the Secretary of State on the contents of Regional Planning Guidance.

2.10 Regional Planning Guidance for the West Midlands (RPG 11) was updated by the Secretary of State in April 1998. The Guidance sets the regional and sub-regional context for the review of the 1995 Plan and other UDPs and Structure Plans. The RPG outlines the shared vision for the Region within the overall framework of Sustainable Development. Of particular relevance to Sandwell are references to:

2.11 The West Midlands Economic Strategy, which was published in October 1999, proposed the creation of Regeneration Zones in the region as a means of focusing regeneration resources and activity.

2.12 A large part of the Borough has been identified by Advantage West Midlands to be part of a sub regional regeneration zone due to the widespread nature of deprivation in the Borough and the abundance of opportunities that can be built upon for the benefit of those people. The zone covers parts of central Dudley and western Birmingham. The objective of the regeneration zones is to link people in deprived communities with employment opportunities that are created in the zone and to encourage cross boundary co-operation. This will require policies for linking people to opportunities such as transport, training and business support.

Crime and Disorder

2.13 Crime and the fear of crime is a major factor preventing the full enjoyment and use of the environment. In a broader sense, crime is a significant quality of life issue. The Crime and Disorder Act of 1998 places a joint responsibility on both the Local Authority and the Police (the "Responsible Authorities") to develop crime and disorder reduction strategies. Section 17 of the Act also places on these Responsible Authorities, within the discharge of all their duties, a requirement for them to do all they can to reduce crime and disorder in their area.

2.14 Therefore, it is the intention of the Council, together with the Police, to work jointly towards the reduction of crime and disorder in Sandwell. This will be a material consideration in all planning initiatives. It will have particular emphasis in the area of "Secured By Design" or "Planning Out Crime", where the Council will work, in partnership with the Police, towards the continued development of a safe and secure environment.

Community Plan Strategy

2.15 As part of its modernising agenda, Central Government expect to see a greater co-ordination of services between the Local Authority, other statutory Agencies, businesses, the public and voluntary sectors. To guide the overall approach to issues facing the Borough, a new partnership has been established to develop a new strategic focus. The Civic Partnership for Sandwell has been established to provide the mechanism for joint planning, joined up thinking and most importantly to provide clear civic leadership. The core membership of the Civic Partnership comprises the Leader of the Council together with the various Chairs and Chief Executives of the main agencies representing health, police, training, business and community/voluntary sector interests.

2.16 The Civic Partnership's key tasks to date have been to initiate a process to agree a long-term vision for Sandwell and to participate as a pathfinder in the New Commitment to Regeneration initiative which is testing new ways of co-ordination and working.

2.17 The Civic Partnership has developed a strategic vision which is intended to guide the development of future strategies such as the UDP. This vision and the draft Community Plan were incorporated into the Sandwell New Commitment to Regeneration Strategy and Action Plan which was submitted to Central Government in October 1999. This will provide the overarching framework for the whole range of specific policy agendas and agency corporate plans in Sandwell.

2.18 Thus it is important to remember that, whilst the UDP is an important policy document it is only one of several. It is essential that all policy statements have the Civic Partnership Strategic Vision as their guiding light.

The Strategic Vision

The Sandwell of 2020 will be a thriving, sustainable, optimistic and forward-looking community.

Sandwell residents will live in a transformed and safe environment, will enjoy excellent health, rewarding work, experience choice in their lives and have a positive view of life in Sandwell. Sandwell will have a positive role in a revitalised West Midlands. It will continue to be a diverse but harmonious mix of industrial/commercial activity and of urban living in which traditional environmental conflicts will have been minimised and the principles of sustainable development applied.

2.20 The Sandwell Civic Partnership in developing Sandwell's first Community Plan has identified five priorities for action which develop the 1995 Plan principles. These priorities were adopted as the key principles in the review of the 1995 Plan. Whilst some are addressed directly by the contents of the Plan, all policies and proposals have the five principles as their context.

Civic Partnership Priorities for Action and Key Principles for the UDP

2.21 A number of principles have also been established by the Partnership. These Partnership Principles are:

2.22 The Civic Partnership sees the review of the 1995 Plan as an important part of the development of an Urban Form Strategy for Sandwell as part of the restructuring of Sandwell's environment. The Vision sets out the view that Sandwell will continue to be a diverse, but harmonious, mix of industrial/commercial activity and of urban living, in which traditional environmental conflicts are minimised. Thus the concept of mixed-use can be applied at a Borough-wide level as well as the more localised opportunities identified in the plan. Of crucial importance to the review of the 1995 Plan is the concept of Sustainable Development. The UK Strategy for Sustainable Development identifies ten guiding principles which need to be addressed as part of the UDP review, and are reproduced in Appendix 1.

Strategic Objectives

Policy SO1 - SUSTAINABLE DEVELOPMENT

2.23 The Government is committed to sustainable development and has set out its approach in its Strategy for Sustainable Development in the UK. The Strategy is based on four broad objectives as stated in paragraph 2.2.

2.24 The policies and proposals of the UDP review have been produced within the context of the Council's Sustainable Development Strategy and an Environmental Assessment of the Plan has been carried out. Of particular importance in relation to the national and regional debate on Urban Capacity is that nearly all land use allocations in the Plan for built development are on so-called brownfield sites. The few exceptions that affect playing fields include statements that require alternative provision to be made in accordance with the policies in Part I of the Plan.

Energy

Policy SO2 - ENERGY CONSERVATION

Development should take into account energy conservation in the siting, layout, design, orientation of buildings, materials and landscaping. Pre-application discussions to consider this will be welcomed. Proposals may be refused where adequate consideration has not been given to energy conservation.

Policy SO3 - RENEWABLE ENERGY

The development of renewable energy sources (such as wind or solar power) will be supported. Proposals for such facilities will be considered on the following criteria:

Impact on the natural and built environment
Affect on the amenity of residential properties

The use of waste for the generation of power or heat will be encouraged. Such schemes would include the controlled use of landfill gas and combined heat and power schemes.

2.25 Climate change is considered by many to be the most pressing global pressure that we face. There is international agreement that each nation should play their part in reducing their share of greenhouse gases which are aggravating the situation. The Government believes all sectors of the economy should play their part in meeting the UK's emissions targets. It is clear that the Government is expecting local authorities to be instrumental in helping others to cut carbon dioxide emissions. To meet these targets will require policies which meet the needs of the people and businesses for affordable energy, warmth and mobility, and ensure secure and diverse energy supplies in environmentally acceptable ways. The development plan can contribute to this in two ways, through policies aimed at reducing energy consumption in new development, and encouraging the use of renewable energy sources. The detailed policies for energy conservation will be incorporated into supplementary planning guidance dealing with the design of new development.

2.26 An Energy Strategy is being prepared for Sandwell. The strategy will seek to:

Mixed-Use Development

Policy SO4 - MIXED-USE DEVELOPMENT

Within the Borough at appropriate locations mixed-use development will be encouraged. This type of development can help to create vitality and diversity and reduce the need to travel especially in town centre locations.

2.27 Mixed-use development can help create vitality and diversity and reduce the need to travel. It can be a more sustainable form of development than a single use. To deliver these benefits the type of development will be determined by the characteristics of the area. Developments will need to be purposely designed or comprehensively adapted to take account of their surroundings, likely impact on sustainability, overall travel patterns and car use. Major mixed-use developments which will generate a large number of trips will be directed to areas well served by public transport, usually town centres.

Housing

Policy SO5.HOUSING

The plan identifies sufficient land to provide for the housing needs of the whole community as indicated in Regional Planning Guidance. The Council will continue to develop partnerships with residents, owners, occupiers and other agencies to improve the condition of the existing housing in the Borough. Where housing has come to the end of its economic life the Council will explore opportunities for comprehensive redevelopment for housing or other appropriate uses in accordance with the overall strategy of the UDP review. The Council will encourage the creation of sustainable, balanced communities incorporating a mix of housing types, sizes and tenure.

2.28 One of the key objectives identified in the Community Plan under the Environment Component is to improve housing conditions and widen the range and quality of residential environments available in Sandwell for existing tenants and homeowners and to retain and attract successful people. In order to achieve this aim, the Civic Partners will look for opportunities to create a wider range of living environments in the Borough through the renewal of existing housing areas, development of the sites identified for housing and through the longer term assessment of opportunities for reallocation and redevelopment.

2.29.The plan recognizes that there are problems with the existing housing stock and makes provision for the construction of new housing in accordance with Regional Planning Guidance. The plan contains polices covering both existing and new housing.

2.30 Most (approximately 90%) of the homes required for 2011 already exist, so the condition of existing dwellings is at least as important as building new ones. Many dwellings in Sandwell are in poor condition and priority will need to be given to looking at their state of repair and adaptability to changing household structures and sizes in the face of growing demands and aspirations. Where housing has come to the end of its economic life opportunities will be explored for the comprehensive clearance and redevelopment of the area. Many existing dwellings are of the wrong type and tenure to meet the predicted housing requirements.

2.31 New housing in the Borough should meet the needs of the Borough's population. Most new housing in recent years has only met the needs of families that can buy their own homes - often at the lower end of the owner occupied housing market. Migration figures show families are moving from the Borough, indicating a shortage of larger family housing. In addition the needs of the less wealthy (it is estimated that 41% of the households in Sandwell have gross annual incomes of under £10,000) and single people, both old and young, also need to be considered. The Black and Minority Ethnic community is significant in Sandwell and the specific needs of these communities are addressed in the Housing Strategy and the UDP review. There is also a growing demand for accommodation for people with varying care needs especially the very elderly (85+).

2.32 The Housing Strategy Statement 1999/2000 estimates there is a shortage of detached houses and bungalows and a surplus of flats.

Policy SO6 - CHANGE OF USE

Where there are no specific proposals shown on the Proposals Map, any proposed development will need to comply with the general policies contained in the plan.

2.33 The UDP review does not make land use allocations covering all parts of the Borough. Where certainty is required to indicate the future use of land, site allocations have been made and these are shown on the Proposals Map. In other areas of the Borough where there is not anticipated to be a major change in the prevailing land-use no allocations have been made. This does not mean that development proposals being brought forward for a change of use will be refused, in these cases the proposals will be considered against the general polices contained in the Plan.

2.34 The UDP review aims to create a sustainable balanced Borough providing both employment and good quality housing as set out in the Community Plan. The UDP has a major role to play in delivering the economy objectives of the Community Plan, these are to:

Business Zones

Policy SO7 - BUSINESS ZONES

Business Zones are areas of predominantly industrial use and will be the focus for much of the future industrial employment in the Borough. In these zones sites and premises will be safeguarded for industrial use.

2.35 To protect the employment areas of the Borough from inappropriate development the UDP review identifies a number of "business zones ”and these are shown on the Proposals Map. It is intended that these zones will be the focus of industrial employment within the Borough during the plan period providing the much needed employment opportunities for the community. Within these zones there are many opportunities for both local and inward investment demand. The zones include sites suitable to cater for Borough-wide and sub-regional demand on the basis of quality, site availability and size.

Strategic Regeneration Sites

Policy SO8 - STRATEGIC REGENERATION SITES

2.36 The successful redevelopment of these sites is considered to be crucial to bring about the regeneration of the Borough creating new employment opportunities and improving the environment needed in Sandwell as a whole and these local areas in particular.

West Bromwich Town Centre

2.37 The Civic partnership recognise that West Bromwich Town Centre, as the largest town centre in the Borough, has a significant contribution to make to the overall regeneration and prosperity of the area. The UDP review gives greater prominence to the Town Centre, identifying it as the Borough's main town centre. To underline the enhanced priority given to this, the Council has, over the last three years, through consultation with the traders, business and local community, developed a Master Plan for the town centre. The Master Plan was adopted by the Council in August 1999, and has now been translated into the West Bromwich Inset contained within the Plan, to provide a more detailed land use framework with specific policies and proposals to guide development.

2.38 The proposals identified in the Inset will result in a major physical restructuring of the centre, bringing significant economic investment. The opening of the Midland Metro has made West Bromwich a particularly accessible place. A new bus station has been built and the Ringway has been converted to two way running.

2.39 In addition to these firm commitments a further 20 hectares (50 acres) of land has been identified for development opportunities for major retail, leisure and associated town centre uses. The Council will work in partnership with the private sector to bring forward major investment on significant elements of this land in a comprehensive manner.

2.40 These significant proposals will also serve to support and complement the range of area based regenerative initiatives aimed at improving the quality of life of residents in and around the town centre. In particular, the redevelopment of the Lyng Housing Estate and the Greets Green New Deal for Communities initiatives are two key areas which could see major physical as well as social and economic change over the Plan period.

2.41 These initiatives, together with others within the area, may give rise to more detailed local planning work to be undertaken, with the Plan providing the strategic overview for change. Furthermore detailed work will be adopted by the Council as Supplementary Planning Guidance.

Hill Top

2.42 Increased development rates along the Black Country New Road suggest that significant latent demand has been unlocked through public sector intervention. However, market assessment indicates that the supply of land for industrial/commercial development in the Black Country is likely to fall short of demand as opportunities are taken up. There is therefore a need for a second generation economic stimulus to maximise the access opportunities provided by the Black Country New Road, but in addition to benefit from major opportunities for integrated transport based around the Midland Metro.

2.43 Provision for local business expansion, combined with the knowledge-driven economic clusters advocated in the latest Competitiveness White Paper, can only be facilitated by the provision of development opportunities on a considerable scale. National and regional imperatives to accommodate such economic opportunities on brownfield land lead to unprecedented opportunities for development at the heart of the conurbation.

2.44 The provision of major industrial/commercial development sites (20 hectares plus) within the urban area would not only relieve pressure for greenfield/peripheral development but also provide jobs where they are most needed. Hill Top provides such a location, accessible via the metro and adjacent to deprived local communities which the Civic Partnership has identified for regeneration. It will not only contribute to meeting RDA objectives of furthering economic development and employment growth in the West Midlands but will do so in a sustainable manner and contribute significantly to Sandwell's urban renaissance and to reducing social exclusion in its communities. Supplementary Planning Guidance for the Hill Top Initiative Area will be produced in the future in order to progress this opportunity.

2.45 The importance of this area for safeguarding existing employment and generating further employment opportunities has been highlighted in the Sandwell Community Plan and the Industrial Land Study which has fed into the review of the UDP.

2.46 The Hill Top Initiative area, which is shown on the Proposals Map, will be the subject of a wide range of regeneration activity with objectives to:

M5 Junction 1

2.47 The North Smethwick area has been the focus for a variety of initiatives over the past few years. This is a result of quite serious physical problems, for example, poor housing conditions, unattractive and outdated industrial buildings, heavy industrial traffic, which passes through residential areas, and the lack of quality open space.

2.48 However, on the positive side the area located around Junction 1 of the M5 offers a unique opportunity for major development to locate in the area in view of its primary location at the heart of the West Midlands conurbation. The area adjoins a Green Belt setting and has direct access to public transport links which include the Midland Metro and road links to Junction 1 of the M5 and the Birmingham Road (A41) which links West Bromwich and Birmingham City Centre. All of the sites identified in the area are considered to have out-of-town locations which are strategically placed in the heart of the West Midlands Conurbation.

2.49 It is proposed that the majority of the sites are suitable for industrial development (B1, B2 & B8) except those located within the Green Belt. However, in view of the exceptional public transport and strategic road links that sites in this locality benefit from, and the type of existing leisure uses already in the area, there is also a unique opportunity for a major leisure development to establish itself in the central area contained to the south of Birmingham Road by Halfords Lane, Colliery Road and the Metro Line, in addition to its potential for industrial development. The type of leisure use envisaged will not be of a type which is usually located in town centres and must comply with the requirements of PPG6 and other relevant Government policy statements. This site is identified as a mixed-use proposal on the Proposals Map.

2.50 Acceptable major leisure development proposals will provide primary uses and appropriate ancillary uses which are committed to the provision of sporting and recreational facilities. These uses should complement other land uses in the area, such as West Bromwich Albion Football Club, the West Bromwich Dartmouth Cricket Club and Sandwell Valley Golf Course, all of which are major recreational attractions in Sandwell.

2.51 Appropriate major redevelopment will provide a new focus for the Borough and promote the vitality and viability of the area. Attracted to the unique setting of the area complementary comprehensive development will raise the profile of North Smethwick and identify it as the location of Sandwell's primary leisure attractions. Economic benefit at both a national and regional level will be forthcoming. New development will open up alternative local employment and training opportunities in the area and will improve the environmental quality for the local community.

M5 Junction 2

2.52 The area located around Junction Two and Birchley Island has been the focus of a number of development proposals in recent years on vacant or under used land which exists in the area in view of the direct access that it has to the strategic road network.

2.53 Access to and from the M5 motorway at Junction Two results in additional traffic loading onto the local network. The situation is exacerbated further by the levels of local traffic which uses the highway network in the area. The tight urban framework of Sandwell, with its dense development and mixture of land uses, places heavy demands on the highway network.

2.54 This area is considered to be an out-of-town location and any future development which is attracted to the area should be of an industrial nature, particularly distribution or manufacturing uses, that generate significant goods movements, in view of the links to the strategic highway network. As a result, a number of Proposal Sites have been identified for industrial purposes in the area.

2.55 The exception to this view is the Birchley Playing Field site. Although the Council is of the view that B1, B2 and B8 industrial development may be acceptable on the site, it would also be appropriate to consider the development of enhanced recreational leisure primary facilities on the site which would include associated development such as a hotel. It is considered that these combined uses would complement the recreational nature of the adjoining Lion Farm and Newbury Lane Playing Fields. The type of leisure uses envisaged will not be of a type which is usually located in town centres and must comply with the requirements of PPG6 and other relevant Government policy statements.

2.56 In either case where existing recreational facilities are lost to built development there will be a requirement for alternative new or improved facilities to be provided in the area, in order to overcome national and local planning policy concerns. This cost will be borne by the developer.

2.57 Further retail development will be resisted in this location given that alternative sites exist within nearby town centres and edge-of-centre locations.

2.58 The (A4123) Wolverhampton Road provides a primary road frontage adjacent to the Birchley Playing Field site. Negotiations are currently underway with the Highway Authority for the A4123, regarding the de-trunking of the road.

2.59 Given the heavy flows of traffic which already access the area, the Birchley Traffic Island which links Wolverhampton Road, Birchfield Lane and Church-bridge with Junction 2/M5, is considered to be at capacity. Therefore, it is likely that before any further development takes place in the area, which generates significant levels of vehicle movement, major improvements will need to be carried out to Birchley Traffic Island, the cost of which is likely to be borne wholly by new development proposals.

2.60 The full cost of these improvements cannot be fully assessed until the planning application stage. Applications for development will need to be supported by a full Transport Assessment and possibly an Environmental Impact Assessment where major development is proposed.

Bescot

2.61 The Bescot site is considered to be of strategic importance given its size (around 17 hectares) and its proximity to the national rail network. There is a lack of such sites in the West Midlands conurbation. The site is adjacent to the West Coast Mainline and abuts extensive railway sidings. In principle the concept of encouraging freight interchange facilities, together with associated development, is supported as part of the national and regional strategy of encouraging modal change. Alternatively an industrial development requiring direct access to the rail network could be appropriate.

2.62 Unfortunately the site is not served by direct road access. Proposals to access the site via a new link to Junction 9 of the M6 have been proposed but have proved too costly given the development then being put forward. In addition the site is in close proximity to housing. Therefore, any proposals will have to be assessed in relation to the local impact in addition to potential strategic benefits.

Land At West Bromwich Street Oldbury.

2.63 Oldbury is identified as one of that it provides a variety of facilities, which include a large food store; range of comparison and food shops which offer reasonable levels of choice; branches of a range of financial and other services; restaurants/cafes/ pubs/ entertainment; municipal buildings; bus station and some off street car parking; and residential accommodation.

2.64 In recent years Oldbury has undergone changes and seen significant investment. While a number of industrial land uses still operate in the area, many traditional industrial uses have disappeared and sites have been reclaimed and developed for alternative uses, which have included new office and retail development on the edge of the existing town centre.

2.65 Oldbury Town Centre serves three separate roles in relation to its shopping function. The larger stores, particularly Savacentre draw trade from a wide catchment area. While the town centre core co-exists, it has not benefited fully from the trade brought in by the larger stores, particularly from the recently developed Oldbury Retail Park situated to the north west of Oldbury Ring Road.

2.66 A 16ha site at West Bromwich Street provides a further opportunity for further significant investment to take place in this part of the Borough. This is a major edge-of-centre site which is within mixed ownership. The site is considered suitable for a mixture of uses that are capable of supporting and complementing the existing function of Oldbury Town Centre. It is envisaged that the major new leisure facility will provide a catalyst for further development to take place on the site on a comprehensive basis, which would be expected to link in with the leisure theme.

2.67 The Council is willing to consider a flexible approach to what is meant by "leisure-led” given that regeneration of the site is recognized to be of importance through Policy S08. This may be through the consideration of phasing of the development, but must ensure that the leisure focus of the development is maintained. In addition, it is considered essential that a comprehensive approach is taken to any future proposals. A Master Plan for the site which will reserve sites for leisure development in a phased approach will be developed.

The Key Aspects to be addressed in the UDP Review

2.68 Within the framework established by the vision there are specific aspects that the UDP needs to address directly. These include:

Strategic Overview

National Planning Policy