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MANCHESTER CITY COUNCIL MANCHESTER CITY COUNCIL REPORT

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MANCHESTER CITY COUNCIL MANCHESTER CITY COUNCIL REPORT Powered By Docstoc
					                                             MANCHESTER CITY COUNCIL
                                              REPORT FOR RESOLUTION

COMMITTEE                          THE EXECUTIVE

DATE                               13TH APRIL 2005

SUBJECT                            SITE FOR NEW HIGH SCHOOL IN EAST MANCHESTER

REPORT OF                          CHIEF EXECUTIVE

___________________________________________________________________

PURPOSE OF REPORT

            To determine a preferred site option for the location of the proposed East Manchester High
             School in Beswick following consultation with local residents.


RECOMMENDATIONS

The Executive is asked to:

        Note the feedback received from resident consultation conducted in January 2005.

        Approve the proposed location of the development of the East Manchester High School
         contained within Option „C‟ (See Appendix 2).



FINANCIAL CONSEQUENCES FOR THE REVENUE BUDGET
None

FINANCIAL CONSEQUENCES FOR THE CAPITAL BUDGET
None directly from this report. The future financial consequences in relation to the proposed High
School will be the subject of ongoing discussions with the DfES and details of site assembly
requirements and investment needs will be the subject of a future report.

 CONTACT OFFICERS                           TELEPHONE             E MAIL ADDRESS
 Tom Russell                                223 1155              t.russell@manchester.gov.uk
 Michelle Bailey                            234 1480              m.bailey@manchester.gov.uk
 Steve Edwards                              223 1166              s.edwards@manchester.gov.uk




BACKGROUND DOCUMENTS

   New East Manchester “A New Town in a City” Regeneration Framework March 2001
   Housing Market Renewal Area Development Framework (Abridged Version) – East Manchester,
    June 2003



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   Planning Applications and Consents Reference nos. 066334/OO/NORTH2/02,
    067602/FO/NORTH2/03, 067649/FO/NORTH3/03Report to Executive Committee dated 22 Jan
    2003 “New East Manchester Progress and Key Issues”
   Report to Executive Committee dated 8 Jan 2001 “New East Manchester Limited, Regeneration
    Framework and Progress on Initial Projects”
   Report to Executive Committee dated 19 Jan 2005 “Endorsement of the draft Beswick
    Neighbourhood Plan and South Beswick Redevelopment, proposed City of Manchester (Bell
    Crescent, Beswick) Compulsory Purchase Order 2005
   New East Manchester “Education Investment Strategy” 2003

Copies of the above documents are held at the Housing Market Renewal Office, Elizabeth House,
Off Victoria Street, Openshaw, M11.

WARDS AFFECTED

Bradford

IMPLICATIONS FOR:
                                   ANTI              EQUAL         ENVIRONMENT
                                   POVERTY           OPPORTUNITIES

                                   YES               YES                YES

                                   EMPLOYMENT                     HUMAN RIGHTS
                                   OPPORTUNITIES

                                   NO                             YES




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1         BACKGROUND
1.1       The Regeneration Framework for East Manchester “A new Town in the City” was published in
          March 2001, after extensive consultation with local residents, key agencies and Members. It
          was prepared by New East Manchester Limited (NEM) and formally adopted by the Council
          in 8th Jan 2001. The Framework sets out the broad strategic direction for the long-term
          regeneration of East Manchester. It is consciously holistic in nature, addressing housing,
          economic development, education, environmental and transport issues in an integrated
          manner. NEM and all other agencies recognise that integrated action – tackling these issues
          together, seeing and addressing the linkages between them – is a pre-condition of
          sustainable regeneration.

1.2       The fundamental objective, is that East Manchester will once again become a place where
          people choose to live, work and invest; competitive with other parts of the City and
          conurbation; and thereby reconnected with and able to participate in the economic and social
          success of Manchester.

1.3       The Regeneration Framework sets out the key aims for the regeneration programme in East
          Manchester over the next 15–20 years. These include doubling of the population from
          30,000 to 60,000, the development of some 12,000 new homes primarily for sale, and
          improvements to a further 7,000 existing homes. However, the Framework was not intended
          to provide the focus necessary to deal with the detail of specific challenges facing the
          communities in East Manchester. This is being achieved through the establishment of a
          rolling programme of neighbourhood planning, which provides focused attention on discrete
          neighbourhoods encompassing the whole of the East Manchester area. The Beswick Area
          is one of fourteen residential areas in East Manchester identified by the Regeneration
          Framework.

1.4       The Regeneration Framework identifies the need for a local Secondary School in East
          Manchester and made clear that the improvement of education provision is a priority for New
          East Manchester. Beswick was identified as an appropriate location in the Regeneration
          Framework.


2         THE BESWICK NEIGHBOURHOOD PLAN

2.1       The Beswick Neighbourhood Plan (Appendix 1) was considered by the Executive at their
                         th
          meeting on 19 January 2005 and approved subject to the consideration of retaining the
          Seven Stars and the Co-operative Building in the south-west corner of the site and further
          consideration and approval of the detailed location of the High School site.


3         NEW HIGH SCHOOL

3.1       New East Manchester Ltd published an Education Investment Strategy for East Manchester
          in 2003. This recognises the pivotal role education plays in sustainable regeneration and the
          need for future planning of capital investment in school facilities to meet the educational
          needs of the future population. As part of this a thorough analysis of population projections
          linked to the housing development programme was carried out. It is anticipated that planned
          redevelopment in East Manchester will generate the need for 900 high school places as the
          housing programme develops. In order to meet this demand and in line with the strategic
          Regeneration Framework, a site for a potential new high school was allocated in Beswick, as
          part of the draft Neighbourhood Plan.



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3.2       Earlier this year the Government announced a new funding regime – Building Schools for the
          Future – and Manchester submitted a bid that will provide the capital to develop the new high
          school in Beswick. The bid has received „in principle‟ approval and a final business case is
          being prepared.

3.3       The school as originally planned in the Regeneration Framework would have been a 5 form
          entry high school for 750 pupils with associated playing fields with room to expand to a 6
          form entry school as the population increased.

3.4       The Department for Education and Skills (DfES) has changed the requirements for the
          amount of sports, play and circulation space for children on a school site. The DfES has also
          recently published the Building Schools for the Future Exemplar Designs. These indicate the
          need for high quality play, leisure and sports space within the school environs.

3.5       For these reasons, the area of land that was originally set aside for the school on the
          Neighbourhood Plan is no longer adequate. It is now necessary to extend the area for school
          playing fields to identify an acceptable site to secure DfES funding.

4         CITY POLICY CONTEXT
4.1       The Regeneration Framework for East Manchester takes account of the views expressed
          during three months extensive consultation with the community and a wide range of
          interested stakeholders and organisations. It identifies a number of principles, which support
          the need for housing renewal and regeneration. Included in these principles is the need to
          create strong sustainable communities.

4.2       The UDP for the City of Manchester was adopted in July 1995. The UDP supports the
          creation of new development opportunities to improve the quality and choice of housing and
          upgrade the local environment. The Plan has been subject to partial reviews since adoption,
          the most recent of which concerned the East Manchester part of the Plan. The East
          Manchester Alterations to the UDP give expression to the land use elements of the
          Regeneration Framework for East Manchester. The Alterations were progressed in
          accordance with the procedures set down in the Town and Country Planning (Development
          Plan) (England) Regulations 1999. This process culminated in a UDP Inquiry that was held
          on 8th May 2003 and the subsequent adoption of the East Manchester modifications to the
          Unitary Development Plan on 25th November 2003. The East Manchester Regeneration
          Framework is thus now formally underpinned by the amended UDP.

4.3       The Community Strategy identifies the need to sustain communities and enable them to
          realise their economic and social potential by removing areas of unfit housing and improving
          the range of housing quality and choice.

4.4       The Corporate Housing Strategy plays a key role as a catalyst and contributes to the
          Council‟s wider regeneration agenda. It sits firmly with the Council‟s community strategy and
          its related emerging neighbourhood renewal strategy and it identifies extending housing
          quality and choice as a key objective. The creation of new development opportunities will
          help to achieve this as will the improvement of the local environment.

4.5       The New East Manchester „Education Investment Strategy‟ was endorsed by the Schools
          Organisation Committee on the 5th May 2004. The Strategy recognises that without a
          significant rise in educational standards and attainment, the New East Manchester
          regeneration targets for comprehensive physical, social and economic renaissance will not be
          realised. The Strategy outlines the plan for a new high school in Beswick which would act as
          a key anchor to the area‟s regeneration. The Strategy argues that approval for a new high
          school in East Manchester is a necessary pre-condition for the successful renewal of the
          area and the achievement of high educational standards for its residents.
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5           PLANNING APPLICATION AND CPO PROCESS

5.1         An application (ref. 066334/OO/NORTH2/02) seeking Outline Planning Permission for 1,100
            dwellings, 2 schools and mixed-use retail and business developments in the land to be
            redeveloped was accepted on 9 August 2002, and approved on 6 March 2003. The outline
            planning permission granted general approval for the principle of the phased development of
            the site identified in the planning application. Detailed matters relating to means of access,
            the siting, design and external appearance of the proposed buildings and the landscaping of
            the site were left reserved. Further planning applications relating to reserved matters will be
            required to be submitted, and planning permission granted, prior to the actual development of
            the site.

6           HIGH SCHOOL SITE SIZE REQUIREMENTS

6.1         DfES Building Bulletin BB98: Briefing Framework for Secondary School Projects became
            applicable as guidance for Secondary School designs in April 2004. It replaces BB82, and
            for an average secondary school means a minimum increase of 7% in site size on the
            previous guidance. DfES recommends a further increase of between 4% and 10% in site
            size on BB82 standards so that the „individual priorities‟ of schools can be met.

6.2         DfES BB98 guidance for High Schools without specialisms of 900 pupils indicates a minimum
            site size of 60,830m2 and a maximum of 74,655m2.

6.3         This does not include an allowance for:

      (i)   Additional space for facilities to support a specialism (it is certain that the New High School
            would need to have specialist status);

            Extended schools provision/co-location of services (eg the relocation of Beswick Library as
            part of the new High School is under consideration). A key aspiration of Building Schools for
            the Future and the City‟s Education Vision relates to the delivery of Extended Schools
            providing an access point for the delivery of services for children and their families, as well as
            pre and after school clubs and holiday schemes. The anticipated space requirement for the
            library is 700m2.

      (ii) Sixth form or post 16 provision

            DfES has indicated that sites at the minimum size are unlikely to be approved as they do not
            allow for future expansion or development. The DfES has also recently published Exemplar
            Designs for High Schools which aims to provide the highest quality learning environments for
            children using exemplar designs and new technology. To deliver a site of minimum
            proportions would undermine these aspirations.

            At this stage it is not possible to be clear on the requirements of sixth form/post 16 provision.
            However, it should be noted that a sixth form centre with 180 places would generate a
            requirement for additional extended sports pitches and outdoor spaces of 9,306m 2. DfES
            count the provision of synthetic football pitches and multi use games areas as double. The
            current outline proposals include a synthetic adult football pitch of 8,250m 2 and a multi use
            games area of 1,650m2 providing a total of 9,900m2. The provision of these synthetic
            surfaces would allow for the development of sixth form/ post 16 provision if required.




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6.4       The proposals for the new High School for East Manchester envisage a 900 place school.
          Even if a 750 place school was to be considered, there would need to be scope for
          expansion, specialism and extended school/service co-location to be accommodated.
          Given that the minimum and maximum site requirements for a 750 place school without a
          specialism are 53,075m2 and 65,138m2 respectively, a site size which is between 65,000 and
          70,000m2 is essential to allow for such developments.

6.5       The sports pitches and outdoor spaces provide the minimum required for the curriculum
          delivery and circulation space. The DfES would not readily agree to a reduction in these. Any
          reduction would also be opposed by Sports England who have signed up to the removal of
          unused surplus sports pitches in the area on the understanding that the facilities provide by
          the new school would be shared use with the wider East Manchester community.

7         OPTION FOR THE EXPANSION OF THE SITE

7.1       Following consideration of the amended regulations regarding the size of site required for the
          High School, the options for identified an expanded site within Beswick were identified. The
          new proposed site included land south of the „Green Route‟ which had been previously
          allocated as new housing within the Neighbourhood Plan and existing housing in the area
          bounded by Bordan Street, Barmouth Street, Campion Walk and Albert Street.

7.2       The area south of the proposed „Green Route‟ had previously been earmarked for new
          housing development by preferred developers Gleeson. The expansion of the site to include
          this part of the site will result in a net loss of approximately 100 new housing units as
          compared to the site originally earmarked.

7.3       The area of additional existing housing affected by the expansion to the north west of the site
          contains 79 residential properties. 45 of these properties are owned and managed by
          Guinness Trust, 3 by Family Housing Association, 3 by North British Housing Association, 1
          Manchester City Council property, 13 privately tenanted, 14 owner occupiers.

8         CONSULTATION PROCESS

8.1       Residents within the properties affected by the necessary expansion of the site as listed
          above received a letter in September 2004 explaining the reasons for the proposed
          expansion. This letter was followed by a Drop In event for all Beswick residents held on 27 th
          and 28th September 2004 for resident‟s views on changes to the Neighbourhood Plan which
          incorporated other changes apart from those at the school site. Concerns were expressed by
          a number of affected residents at this time regarding the process of identifying an expanded
          site and in particular the lack of a range of options to consider.

8.2       Following the Drop In event, a further letter was sent to residents affected by the expansion
          which offered one-to-one home visits to discuss future housing needs.

8.3       Due to these concerns, a number of clarification meetings were held between a number of
          resident representatives, New East Manchester and elected members to discuss the issues.

8.4       The decision was taken in December 2004 to undertake further work on a number of options
          for the site for consultation with Beswick residents. It was agreed that a dedicated Beswick
          „Neighbourhood Update‟ (newsletter) (Appendix 3) be produced, with details of 4 options for
          the site. The „Neighbourhood Update‟ was delivered to each household across the Beswick
          neighbourhood on the 26th January 2005 and a „Drop In‟ event was held on the 31 st January
          to provide more detail on the proposed site options and to assist in answering questions from
          residents. A Feedback Form formed part of the newsletter which asked residents for their
          views on each option and asked for their preferred option.
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9         OPTIONS FOR THE SITE

9.1       SITE REQUIREMENTS

9.2       Each option is able to deliver the site in terms of the minimum requirements from the BB98
          regulations. There are a number of facilities which must be provided within the site including
          habitat areas, hard and soft areas and a variety of adult and junior sports pitches. Due to the
          advanced nature of the design of the Neighbourhood Plan in Beswick, each of the options
          have taken account of the „Green Route‟ which provides a new west to east route and safe
          pedestrian and cycle provision across Beswick. As the key for each option details (Appendix
          2), the main school building is identified as letter „A‟ and the sports/community facility building
          as „B‟ on the plans.

9.3       The provision of 2,337 m2 for land subject to Charitable Trust was also essential in each
          option to reprovide a site for recreational purposes which is affected by the redevelopment on
          the Ashton Old Road frontage which was highlighted in an Executive Committee Report on
          7th July 2004.

9.4       The 4 site options also affect proposals for new retail provision on Grey Mare Lane and the
          potential size and location of this provision varies in each option. The „Beswick Retail
          Strategy‟ is currently being finalised however, each of the options deliver sufficient flexibility
          for maximising the opportunities in relation to new retail provision for the Beswick area.

9.5       „Key facts‟ relating to each of the 4 options such as the size of the site, the ability to provide
          new homes as compared to other options and the number of houses to be demolished as
          compared to other options, were highlighted within the newsletter to assist residents in
          comparing the options to arrive at a preferred site location. The feedback from residents is
          summarised below and a full report is attached at Appendix 4.

9.6       OPTION A

9.6.1     The size of the Option A site is 67,900 sq m which is within the range as prescribed by BB98
          as between the minimum site size of 60,830m2 and a maximum of 74,655m2.

9.6.2     This option would require the demolition of a total of 192 homes however, the large majority
          of these homes were previously identified as required for the original site. The additional
          properties affected are those as outlined in Section 7 above.

9.6.3     The provision of 111 new homes in the south section of the area will be possible in this
          option.

9.6.4     The Charitable Trust land would be situated in the south section of the area, adjacent to the
          school playing fields.

9.7       OPTION B

9.7.1     The size of Option B site is 74,000 sqm which is equal in Option D as the largest site
          proposed and would be close to the maximum site size required of 74,655 m2.

9.7.2     This option also maximizes the ability to provide 135 new homes in the area. This is due to
          the redesign of the „Sports/Community building‟ which has been repositioned on to Grey
          Mare Lane, providing a strong „Education Gateway‟ to the new Green Route and
          opportunities to share the Grey Mare Lane frontage between this building and the retail
          provision.

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9.7.3     This option would require the demolition of a total of 192 homes however, the large majority
          of these homes were previously identified as required for the original site. The additional
          properties affected are those as outlined in Section 7 above.

9.7.4     The Charitable Trust site would either be situated in the south section of Bradford Park or on
          land directly in front of the Grange Resource Centre.

9.8       OPTION C

9.8.1     The size of the Option C site is 67,500 sq m which is the smallest of the 4 options but is
          within the range as prescribed by BB98 as between the minimum site size of 60,830m2 and a
          maximum of 74,655m2.

9.8.2     This option also maximises the ability to provide 135 new homes in the area and as Option B
          would require the siting of the Charitable Trust site to be in the south section of Bradford Park
          of on land directly in front of the Grange Resource Centre.

9.8.3     This option would require the demolition of a total of 157 homes. The area of existing
          housing in the area bounded by Albert Street, Barmouth Street and Jobling Street would be
          retained.

9.8.4     This option also maximizes the ability to provide 135 new homes in the area.

9.9       OPTION D

9.9.1     Option D is equal to B in size in providing the largest site at 74,000 sqm which is towards the
          maximum site required by the BB98 regulations. 113 existing homes would be required for
          demolition which is the lowest number of the 4 options and would retain existing housing
          bounded by Albert Street, Barmouth Street and Bordan Street.

9.9.2     This option would require a substantial reduction in the numbers of new homes provided as a
          total of only 30 new homes would be able to be provided due to the size of the site and the
          extend of retention of existing homes.


10        FEEDBACK FROM CONSULTATION PROCESS

10.1      Following the distribution of the dedicated „Neighbourhood Update‟ (newsletter), 60
          completed Feedback Forms were returned. This equates to a 3% return rate from across the
          Beswick neighbourhood. Further activity to increase this low percentage of returns was
          considered however it was agreed that progress should be made on a decision as soon as
          possible and that it was the nature of the issue that those potentially directly affected would
          be inclined to respond as apposed to those indirectly affected.

10.2      The totals for each option were as follows:

                     Option               No of Returns           % of the total return
                     A                    9                       14%
                     B                    11                      17%
                     C                    30                      47%
                     D                    6                       10%
                     NP                   7                       11%

          NP – No Preference
          Total No of Returns was 63 as some had more than one option choice.
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10.3      Whilst there was a low overall response to the consultation across the neighbourhood, there
          was a return rate of 31% from the properties affected by the expansion of the site in the north
          west corner (area bounded by Albert Street, Bordan Street & Bordan Street). Of these
          residents, 57% expressed a preference for Option C which would retain the properties in this
          area.

10.4      There was a general theme running through the replies of those who chose Option C in that
          they felt that there was a settled and established community of many years standing which
          they did not want demolished. The money spent on a facelift scheme and other
          improvements were also given as a reason for choosing this option. In addition it was felt that
          this option allowed as much new build as the others options, but without a loss to the school
          site area.

10.5      Those who chose the second most popular Option B in general felt happy about the
          developments and that Beswick needed the improvements.

11        SOCIAL, ECONOMIC AND ENVIRONMENTAL BENEFITS

11.1      The proposals for the new High School are integral to the Beswick Neighbourhood Plan. The
          transformation of the neighbourhood is holistic and complete; creating a well designed, well
          managed, mixed use neighbourhood capable of retaining its residents and attracting new
          residents. All of these actions will take place within a context of wider works intended to
          regenerate the whole of East Manchester; regeneration activities across each discrete
          neighbourhood mutually supporting and reinforcing each other.

11.2      The creation of a successful and sustainable community in Beswick with high quality good
          primary and high schools, quality housing, shops and community facilities, good access to
          employment opportunities at Central Park and the City Centre for example, and well
          designed and maintained open spaces, will set the standard for future developments across
          East Manchester. Beswick will be a safe place, with an inclusive and diverse community,
          who live in a high quality environment and enjoying excellent services. The prominence of the
          Beswick neighbourhood, surrounded on all sides by important transport links provides a
          unique opportunity to act as a gateway to East Manchester and restore pride and prestige to
          this community.

11 1      12 SUMMARY
2

12.1      Of the options outlined above, there is a clear majority both across the wider Beswick area
          and within the area affected by the school proposals, for Option C. Whilst this is the smallest
          land-take of the four options, it is within the guidance for schools of this size and type.
          Option B and D offer significantly greater scope for the design of the school and its potential
          future expansion, this can only be achieved by either an increase in the number of properties
          to be acquired and demolished and/or a significant reduction in the programme of new
          housing development in Beswick. NEM and the City Council have previously indicated their
          wish to contain the disruption and cost associated with demolition of existing properties in
          East Manchester to the minimum level necessary to deliver the objectives of sustainable
          economic, social and physical improvement of the area.

12.2      On balance, therefore, given that the new High School can be accommodated within the site
          identified in Option C, officers consider that this is the site which should be adopted.




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13        CONCLUSIONS / RECOMMENDATIONS

13.1      The Beswick Neighbourhood Plan was formulating following detailed consultation with
          residents and other key stakeholders. The original plan identified a site for the proposed
          development of a new high quality school for East Manchester. However, following changes
          to DfES guidance and a submission to the „Building Schools for the Future‟ programme, the
          size of the site required to meet present day school standards meant that the Neighbourhood
          Plan had to be altered.

13.2      Following the recent consultations with Beswick residents in January this year, feedback
          identified a preference for the site location defined as Option „C‟.

13.3      This site not only meets the site size requirements laid down in updated DfES guidance but
          offers the opportunity to retain a number of existing homes located within the area bounded
          by Albert Street, Bordan Street, Jobling Street and Campion Walk.

13.4      It is intended that, subject to the approval of necessary funding and site assembly
          requirements, the school will be developed to be opened in time for the academic year of
          2009/10.

13.5      It is therefore recommended that Executive approve the location of the proposed High School
          defined at Option „C‟ (Appendix 2).

13.6      A further report will be tabled at Executive detailing site assembly requirements and
          investment needs at the earliest opportunity.


14        IMPLICATIONS FOR KEY COUNCIL POLICIES

14.1      The implications of this report for the Council‟s Environmental policies are that the High
          School development will result in, the physical environment being greatly improved to give a
          new high quality environment with innovative use of public spaces and the development
          being of the highest quality of design and construction thus providing for the long-term
          sustainability of the area.

14.2      The implications for the Council‟s equal opportunities policies are that the new educational
          environment created will be accessible for all sections of the community.

14.3      The implications for the Council‟s policies for combating poverty and disadvantage are the
          improvements will address social exclusion and enhance the quality of life for the residents
          by improving both the overall social conditions, educational and employment opportunities in
          the area.

14.4      The implications of this report for the Council‟s policies on employment are a substantial
          improvement in the educational opportunities within the area and the development
          investment which will attract local employment opportunities for local people building on work
          already carried out by the NEM and NDC teams working in the area.

14.5      The proposals are consistent with the City‟s regeneration strategy for New East Manchester.




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APPENDIX 1
                                                   th
Neighbourhood Plan (Illustrated Map) approved on 19 January 2005 subject to revisions

APPENDIX 2
Options A to D for the School Site

APPENDIX 3
Copies of Beswick Neighbourhood Update January 2005

APPENDIX 4
Feedback from Consultation Process




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