Memorandum by East Riding of Yorkshire
Council (ERYC) (CT 30)
1. EXECUTIVE
SUMMARY
1.1 Many coastal towns face a range of specific
and inter-related issues: deprivation, isolation, poor transport
links, coastal erosion, restructuring of tourism/other coastal
industries and would benefit from consistent and long-term funding
support.
1.2 There is a need for a more joined-up
policy approach across Government to address the issues of remoteness,
peripherality and access that are inherent to coastal towns.
1.3 Greater flexibility and responsibility
should be devolved to RDAs and Local Authorities to ensure that
effective regeneration is delivered locally.
2. BACKGROUND
ON THE
EAST RIDING
OF YORKSHIRE,
EAST RIDING
OF YORKSHIRE
COUNCIL AND
SPECIFIC FUNDING
WITHIN EAST
RIDING'S
COASTAL TOWNS
2.1 The East Riding of Yorkshire has one
of the longest stretches of coastline of any Local Authority area
in England, extending 52 miles (84.5km) from the chalk headland
at Flamborough, through the Holderness plain to the Humber Estuary.
Flamborough Headland and the southern end of the East Riding coastline
at Spurn Point have Heritage Coast designations, with Flamborough
also designated as a European Marine site and the Spurn peninsula
as a National Nature Reserve. (See attached map on page 8).
2.2 The East Riding has one of the fastest
eroding coastlines in North West Europe, with coastal protection
in place only at the main centres of population and areas of national
interest—this amounts to only 11.4 km of the total length
of 84.5km. The rate of erosion on the unprotected stretches (mainly
in Holderness) is currently averaging 1.8 million per annum.
2.3 The East Riding has a population of
around 325,000, of which around 20 live in its coastal communities.
The seaside resorts of Bridlington (33,589), Hornsea (8,243) and
Withernsea (5,980) are the main coastal towns, while numerous
smaller settlements, which are often scattered and isolated, lie
along its coastal length.
2.4 East Riding of Yorkshire Council (ERYC)
is England's largest unitary authority council by area, covering
930 square miles. The Council is also one of the biggest employers
in the area with a workforce of nearly 9,000 full time equivalent
employees.
2.5 In December 2005, as part of the Comprehensive
Performance Assessment, the Audit Commission ranked the council
as "improving strongly" and as one of only a few councils
in the country to demonstrate this level of continued improvement.
2.6 The main coastal towns have previously
received external funding support (totalling approx £5 million)
under time-limited schemes (three to five years): Single Regeneration
Budget (SRB) for both Bridlington and Withernsea and Market Town
Initiative (MTI) for Hornsea. The continuity and length of these
schemes has created problems as they have not operated for a long
enough period of time to embed the new services and initiatives
they sought to deliver and, therefore, the long-term impact these
programmes may have had, has been limited.
2.7 Bridlington and the coastal strip (excluding
Hornsea and Withernsea) were, however, awarded Objective 2 status
under the 2000-06 Yorkshire and Humber Programme, which recognises
the need for coastal locations to invest in projects that broaden
their economic base and create new employment sectors, whilst
enhancing the environmental asset base of coastal towns, which
in most cases is their key locational lure.
2.8 Bridlington has adopted a comprehensive
Regeneration Strategy approach to maximise the benefits of Objective
2 and RDA funding. The strategy details the vision and objectives
for change, whilst also providing a broad spatial plan for guiding
future development in the town to 2016, which will become an Area
Action Plan within the Local Development Framework.
2.9 It has been much harder to secure further
funding (post SRB and MTI) for our other main coastal towns of
Hornsea and Withernsea. This is in part due to their failure to
secure Objective 2 status when, despite exhibiting high levels
of deprivation, they were taken out of the Programme (along with
other coastal and estuary towns) to help balance the required
population figures.
2.10 However some of the coastal towns and
areas that were excluded from Objective 2 are eligible for funding
under the Leader+ Programme (2000-06), albeit with a lesser rate
of grant intervention.
3. THE CASE
FOR SPECIAL
INITIATIVES TO
TACKLE THE
NEEDS OF
COASTAL TOWNS
3.1 There are clear-cut issues facing coastal
towns of all sizes. These issues are highlighted by the Index
of Multiple Deprivation (IMD) 2004, which shows deep pockets of
deprivation within the coastal zone, including low income, benefit
dependency, high unemployment, poor health and lower educational
achievement (areas of Bridlington fall within the top 3% nationally).
There is also a broader zone of economic deprivation along the
coastal strip, reflecting more general traits such as isolation
and low aspiration.
3.2 This is illustrated in the allocation
of Neighbourhood Renewal Fund (NRF) and the Neighbourhood Element
of the Safer and Stronger Communities Fund (SSCF). Most of the
22 coastal local authorities eligible for NRF programmes featured
because they cover major industrial towns/cities and therefore
have strongly urban neighbourhoods. In contrast, individual, "stand-alone"
coastal towns exhibit smaller, but particularly intense, pockets
of deprivation.
3.3 These did not qualify for NRF as levels
of deprivation were measured at ward level. The introduction of
Deprivation Indices at the smaller Super Output Area (SOA) level
highlighted these pockets and we very much welcome their recognition
in the allocation of the Neighbourhood Element of SSCF. In common
with Bridlington, the North Somerset coastal area and the towns
of Kings Lynn, Southend, Portsmouth and Thanet have also recently
been awarded SSCF whilst not being eligible for NRF.
3.4 Coastal towns tend to be more remote
and isolated than urban areas, as they only serve a 180-degree
hinterland. Road and rail infrastructure is often poor. There
is no dual carriageway access to the East Riding coastal towns
and only Bridlington has a rail link.
3.5 The demographics of coastal towns are
unique. There is a higher population of older residents in the
East Riding with an in-migration of retirees. The aspirations
of young people are often low and influenced by low wage, low-skill,
part-time and seasonal employment, with few graduates returning
home to the coast. Seasonal employment and cheap rented accommodation
also continues to attract itinerant households, often with chaotic
lifestyles, again putting pressure on services.
3.6 It is important to note the considerable
population increases in coastal towns across a large part of the
year in relation to both day and overnight visitors. This is particularly
pertinent to the large number of caravan sites and the impact
this increased and transitional population has on local service
delivery and education. There is often a greater cost of service
delivery, even in comparison to rural areas, with difficulties
experienced in the East Riding in attracting sufficient qualified
staff (dentists, nurses, midwives etc) to the coastal towns.
3.7 Tourism is a key industry for coastal
towns yet the nature of visitors has changed with increasing day
and short-stay markets for both leisure and business. We accept
that this is the reality and future of tourism for coastal towns.
It is, therefore, vital that such seasonal criteria are into account
by funding bodies when determining value for money of, for example,
Park and Ride facilities and improvements to rail infrastructure.
3.8 The decline in long-term visitor stays
to coastal towns has also had a great impact on the appeal and
usability of town centres such as Bridlington, particularly for
its local resident population. As a result, spending levels in
the town centre are too low to support a wide range of service
jobs, small businesses in other sectors do not want to operate
from the town centre, the retail and leisure offer is inadequate
to meet the town's needs and civic life is not of the quality
that the local community wants and needs.
3.9 While tourism will always remain one
of the most important sectors of Bridlington's economy, the "offer"
needs to be updated. The most plausible tactics for achieving
this are to:
— Make coastal town centres work better
for their existing residents.
— Attract more residents of working
age.
— Provide the operating and commercial
environment in town centres that will be conducive to developing
and growing a competitive, year-round retail, leisure and small
business service offer.
3.10 East Riding coastal towns have previously
relied on former industrial areas (such as the South Yorkshire
coalfields/steel producing areas) for the majority of their tourist
visitors. As these areas begin to recover and become more affluent,
so do their residents, who consequently have more disposable incomes
and higher expectations. If coastal towns are to retain their
existing business, then they too will need to improve their offer.
4. TO LOOK
AT HOW
ODPM IS ADDRESSING
THE SOCIAL,
HOUSING AND
ENVIRONMENTAL PROBLEMS
COASTAL TOWNS
FACE, AND
TO EVALUATE
WHETHER IT
IS EFFECTIVE,
WELL FOCUSED
OR ADEQUATELY
FUNDED
4.1 We do not believe that Government has
responded adequately to the issues identified in "On the
Edge—A Strategy for the Coast" (published by the LGA
in 2001 and reviewed in 2004), which outlines in detail the social
and economic problems facing communities that are affected by
coastal geography.
4.2 There are no explicit programmes or
policies to address the problems faced by coastal towns. In our
city region and in the context of the Northern Way agenda, the
focus on the regeneration of the city-region threatens to marginalise
coastal areas, as many significant seaside towns do not fit well
into the city-region framework. However, many of the Investment
Priorities, eg "Marketing the North to the World" and
"Getting More People into Work" are directly relevant.
It is also important to emphasise that without a successful city
(Hull), it is impossible to have a successful city-region.
4.3 The obvious additional costs to maintaining
the physical and social infrastructure of coastal towns, let alone
improving or enhancing the physical offer and public areas, are
not adequately reflected in Government allocations. For example,
sea-front routes/esplanades need far more frequent maintenance
cycles and up-grade programmes than normal minor routes. With
very limited resources in the first place, "bending"
to meet the specific needs of coastal communities is very difficult
to achieve. We are, however, using the Local Area Agreement (LAA),
which is due for implementation from April 2006, to coordinate
resources and give priority to deprivation "hotspots",
particularly Bridlington.
4.4 The establishment of DMOs (Destination
Management Organisations), an initiative encouraged and part-financed
by the RDAs, may play a larger role in contributing to the improved
economic performance of coastal towns. A joint DMO for Hull and
the East Riding is currently being developed and will be the first
in the Yorkshire and Humber region.
5. TO ASSESS
THE EFFECTIVENESS
OF ODPM'S
LIAISON WITH
OTHER DEPARTMENTS,
IN KEY
AREAS SUCH
AS EMPLOYMENT,
MIGRATION, AND
SOCIAL HOUSING,
AND CO
-OPERATION WITH
LOCAL AUTHORITIES
5.1 The emphasis thus far appears to have
been on coastal protection and associated work with DEFRA. The
East Riding has one of the fastest eroding coastlines in Europe
and the effect of coastal erosion has caused a major blight on
the private housing market along the Holderness coast, as the
cost/benefit analysis approach used by DEFRA when calculating
compensation has disadvantaged this area. Uncertainty and low
property values consequently impact negatively on the economy
of coastal towns.
5.2 Such communities, although relatively
small, are therefore suffering housing market failure similar
to that experienced in inner city and former coalfield areas,
which are being supported by Housing Market Renewal Pathfinder
programmes—a similarly cohesive and comprehensive approach
is needed to enable such communities to achieve protection or
be supported in relocating. (The Hull and East Riding Housing
Market Renewal Pathfinder intervention area does not stretch to
our vulnerable coastal communities).
5.3 The lack of a national Ports Strategy
is a major issue where much stronger coordination across Government
is needed. Ports that have Trust Status are required to have "regeneration"
written into their articles, but this is neither consistently
nor rigorously applied by the Department of Transport. This has
caused particular problems in Bridlington, where ERYC is keen
to promote a Marina and re-developed harbour facility, as part
of the regeneration strategy, but is unable to progress the project
without the active commitment of the port's Harbour Commissioners.
This issue needs to be addressed if Government is serious about
using ports as vehicles for regeneration.
5.4 The need for more joined-up thinking
and liaison between Government departments will become even more
essential in view of the greater devolution to local authorities,
as demonstrated through the rural pathfinders (ERYC is currently
heading the Humber Rural Pathfinder) and Local Area Agreements.
6. TO EXAMINE
WHETHER THERE
IS A
CASE FOR
MORE SPECIFIC
REGIONAL INITIATIVES,
AND WHETHER
ENOUGH ATTENTION
IS PAID
TO REGIONAL
DISPARITIES
6.1 Regional and sub-regional policy markers
are already in place: Regional Economic Strategy (RES), Hull and
East Riding Joint Structure Plan (JSP), Humber Economic Development
Investment Plan (HEDIP) and Integrated Coastal Zone Management
Plan (ICZM), with the RES and HEDIP currently under review. Other
emerging policy documents include the Regional Spatial Strategy
(RSS) and Regional Rural Framework (RRF).
6.2 ERYC's Integrated Coastal Zone Management
Plan (ICZM) is a non-statutory approach that recognises the inherent
linkages in coastal management both between different geographical
areas and sectors. It recognises that many different organisations
and agencies can make a difference to the long-term management
of the zone and aims to gain commitment from these to a common
vision.
6.3 It is vital to ensure that any new regional
initiatives are linked to local delivery and also to realise that
there is diversity within regions not just between regions. The
JSP recognises the special characteristics of the coast (peripherality,
remoteness, seasonal employment, environmental pressures etc)
and a specific policy response is provided. A similar approach
is emerging in the new RSS for Yorkshire and the Humber with a
specific Coastal sub-area also identified.
6.4 The coastal areas of the Northern and
Midlands Regions are less densely populated than those in the
south. Coastal towns, therefore, vary significantly in the degree
of connection between them in terms of labour markets, transport
systems etc and distance from visitor markets. It is more difficult
to demonstrate critical mass and high returns on investment for
northern "stand alone" coastal towns. Any coastal towns
policy/programme would, therefore, need to adopt criteria that
reflect the differing circumstances of each, rather than a "blanket"
approach, which may favour better "connected" coastal
towns such as Brighton.
7. TO CONSIDER
THE SECURITY
OF FUTURE
FUNDING FOR
REGENERATING AND
SUPPORTING COASTAL
TOWNS
7.1 ERYC has been fortunate to secure significant
funding from its RDA, Yorkshire Forward, for Bridlington. However
the status of Bridlington as an Objective 2 area has been a key
factor in this.
7.2 A consistent and reliable long-term
source of funding for coastal towns, with a strategic and programme-led
rather than a project-led delivery approach would be of great
benefit for future development and regeneration objectives within
the coastal zone. (Our current commitment with Yorkshire Forward
for Bridlington only runs until March 2008). The issue of private
sector match funding is a particularly difficult one for many
seaside towns as the capacity in the private sector often isn't
there.
8. TO EVALUATE
THE SUCCESS
OF THE
RDAS AND
OTHER BODIES
IN SUPPORTING
AND DEVELOPING
THE ECONOMIES
OF COASTAL
TOWNS
8.1 Yorkshire Forward have been proactive
in making the major coastal towns of Scarborough, Bridlington
and Cleethorpes "Renaissance Towns" and the smaller
resorts of Hornsea and Whitby part of the Market Towns/Renaissance
Market Towns Initiatives.
8.2 Their approach has centered on improving
the "quality of place" to underpin economic development.
However, the status of being a "Renaissance Town" does
not ensure that a significant funding package is attached and
coastal towns are yet again faced with competing for funds against
the larger regional city centres.
8.3 Equally as important to note are the
difficulties encountered in accessing support for revenue measures,
which remain critical to the ongoing success of capital projects.
We feel that Government should afford more flexibility to RDAs
with regard to the split between capital and revenue funding.
8.4 Whilst support from the Humber and Urban
Renaissance Teams of Yorkshire Forward has been very good, coastal
towns do not appear to be high on the agendas of the cluster and
tourism teams at Yorkshire Forward and there is no dedicated coastal
unit for the region in either the RDA or Government Office, despite
the region's 100-mile long coastline.
8.5 Arguing the regional or sub-regional
impact of a project is often very hard for coastal towns, due
to their locality, yet this is a key element for securing RDA
funds from its single pot allocation. Special dispensation for
coastal towns would make this process inherently fairer.
8.6 We support the concept of Coastal Action
Zones, spearheaded by the Lincolnshire local authorities, which
seek to improve the living standards of coastal communities and
comprises all public service providers in the area.
9. CONCLUSION
9.1 East Riding of Yorkshire Council feels
that the needs of coastal towns should be seriously considered
by Government and would welcome a set of specific initiatives,
which recognise their unique issues and form part of a long-term,
strategic and programme-led funding assistance package.
9.2 The roles and responsibilities of RDAs
should be enhanced, allowing more flexibility to promote Orders
and negotiate capital and revenue funding splits.
9.3 The roles and responsibilities of sub-regional
partnerships should also be enhanced, with a focus on localised
delivery, where this is appropriate and also where quality thresholds
can be met.
9.4 We would advocate the use of a Masterplanning
approach for the regeneration of coastal towns and/or coastal
zones. In the case of Bridlington, we felt there was a clear need
to adopt an Area Action Plan process to provide the broad spatial
strategy for the long-term regeneration of the town. Although
we recognise that this approach is costly both in time and resources,
it is one that we hope will work for us.
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