Part 1
Item 4
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REPORT OF THE LEAD MEMBERS FOR HOUSING AND FOR PLANNING
______________________________________________________________
TO:
REGENERATION INITIATIVES CABINET WORKING GROUP ON 1st OCTOBER 2007
ORDSALL AND LANGWORTHY LOCAL EXECUTIVE ON 2ND OCTOBER 2007
ORDSALL AND LANGWORTHY COMMUNITY COMMITTEE ON 6TH NOVEMBER 2007
______________________________________________________________
TITLE: ORDSALL DEVELOPMENT FRAMEWORK: PROGRESS REVIEW
______________________________________________________________
RECOMMENDATIONS:
 That the report be noted.
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EXECUTIVE SUMMARY: It is approaching three years since the
Development Framework for Ordsall was endorsed as the basis for future
regeneration work in the area. The report records the progress made to date
on implementing the Framework, identifies threats and new opportunities that
may affect future work checks that the Framework principles remain valid.
______________________________________________________________
BACKGROUND DOCUMENTS:
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ASSESSMENT OF RISK: Medium. Delivery of the regeneration programme
is dependant on the market success of the proposed new development.
______________________________________________________________
SOURCE OF FUNDING: The capital income from proposed sales plus
section 106 monies will pay for the proposed infrastructure works.
______________________________________________________________
LEGAL IMPLICATIONS: Reviewed by Michelle O’Reilly.
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FINANCIAL IMPLICATIONS: Reviewed by Peter Butterworth. Appropriate
revenue funding will need to be identified to adequately maintain the
enhanced facilities to be maintained by the council; the costs have yet to be
identified and will be reported in due course.
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COMMUNICATION IMPLICATIONS: There is frequent feedback to local
residents through Community Forum and newsletters. LPC Living take the
lead in promoting the area to prospective new residents.
VALUE FOR MONEY IMPLICATIONS: N/A
PROPERTY: Implications for the council’s service property will need to be
included in relevant Service Property Strategies and the corporate Asset
Management Plan
______________________________________________________________
HUMAN RESOURCES: N/A
______________________________________________________________
CONTACT OFFICERS:
Barry Whitmarsh, Housing and Planning Directorate. 793 3645
Ross Spanner, Neighbourhood Manager. 603 4090
Christine Duffin, Salix Homes. 779 8991
Phil Holden, Urban Vision Partnership. 779 6069
Simon Ashdown, LPC Living. 872 2622
Jonathan Drake, LPC Living. 786 8468
______________________________________________________________
WARD TO WHICH REPORT RELATES: Ordsall
______________________________________________________________
KEY COUNCIL POLICIES:
Enhancing Life in Salford
 Giving residents in the city a choice of quality housing to meet their
needs
 Promoting sustainability through appropriate development,
conservation and improvement of the city’s environment
Creating Prosperity in Salford
 Promoting the city as a location of choice for people and
investment
 Maximising public and private investment to regenerate the city
______________________________________________________________
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ORDSALL DEVELOPMENT FRAMEWORK
PROGRESS REVIEW
1
INTRODUCTION
1.1
It is approaching three years since the Development Framework for
Ordsall was endorsed as the basis for future regeneration work in the
area.
1.2
The purpose of this report is to record the progress made to date on
implementing the Framework, identify threats and new opportunities
that may affect future work and to check that the Framework principles
remain valid.
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BACKGROUND
2.1
In March 2003, the city council entered into a partnership with
developer Legendary Property Company (LPC), to develop proposals
for the regeneration of the Ordsall estate, based on the redevelopment
of vacant and underused land in council ownership.
2.2
The Development Framework for Ordsall was prepared by BPTW
architects, on behalf of the council and LPC. BPTW carried out survey
and consultation work, including a walking audit of the estate. An
exhibition of their ideas for the area was held in April 2004, at Ordsall
Hall. Over 300 people attended the exhibition and 40 people
completed and returned questionnaires. The proposals generally
received overwhelming support.
2.3
Ordsall Langworthy Community Committee and the council cabinet
formally endorsed the Framework in October and November 2004.
2.4
The framework set out proposals for the use of vacant land in the area
and for improvements to roads and footpaths, parks and open spaces
and community facilities. The document was not intended to be a
blueprint for the development of any particular site. It proposed a
number of environmental and infrastructure improvements that would
benefit the estate, identifies sites suitable for development, set out key
principles to guide development and illustrated possible building
footprints.
2.5
In summary, the key proposals were:
Environmental and infrastructure improvements throughout the estate.
New development on currently vacant land.
New development to create natural surveillance to new and existing
streets.
Improve ease of access through estate.
New primary school and children’s centre.
New retail centre on Trafford Road.
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o New community facilities.
o New houses and apartments, with an emphasis on family housing and
affordability to existing Ordsall residents.
o Longer-term opportunity for mixed development on Ordsall Riverside.
2.6
Key Issues
The reports to community committee and cabinet in 2004 identified five
key issues that would affect the success of the Framework.
2.7
The number of new dwellings to be built and their type and tenure,
needed further discussion. In 2004, there were around 2,000 dwellings
in the Ordsall estate, most of which were social rented. Planning
permission had recently been granted for over 1,000 new apartments,
on Trafford Road and Ordsall Lane, which were expected to be for
private sale.
2.8
The development framework did not specify a proposed number of new
dwellings. BPTW considered that up to 1,300 new properties could
potentially be accommodated within the estate; however this figure
would only be achieved if all the available sites were developed and a
high proportion of apartments built. In practice, the number of new
dwellings was expected to be lower: between 500 and 800, including
as many affordable family houses as practical. This figure excluded
LPC Living’s Quay 5 development, which had already received
planning permission.
2.9
The framework concentrated on the main Ordsall estate, but also
illustrated the potential for mixed-use redevelopment of the existing
industrial and commercial area on Ordsall Riverside, and creation of a
new footbridge over the Canal to the Cornbrook Metrolink stop.
However, development of this area was seen as a lower priority than
completing regeneration of the existing estate.
2.10
The framework plan indicated several alternative locations for public
services, such as health and community facilities. The site for a new
primary school was decided. However, further work was needed to
determine the scale of other community buildings needed to serve the
growing population of the estate and of Salford Quays. Once the scale
of service provision was decided, it was recognised that there would
need to be further debate with service providers and residents on the
location of facilities. Potential tensions were recognised between the
benefits of co-locating services (for example, on a community campus
centred around the school and proposed Trafford Road shops) and the
benefits of dispersing services across the estate.
2.11
The size and location of play areas and open spaces would need
careful consideration. The framework illustrated a level of provision
that is consistent with the council’s emerging open space strategy.
However, some play areas were shown located very close to existing
dwellings, which could cause neighbour nuisance. It was noted that
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existing residents might argue for the retention of some of the areas of
open space shown as being developed.
2.12
2.13
The proposal to open up a new east-west road between Trafford
Road and Ordsall Lane and to improve the existing north-south
pedestrian route needed careful design in detail. It is important that
they do not become used for rat-running, encourage fast traffic or
create insecure escape routes from crime scenes.
The Partnership Agreement and Infrastructure Budget
The formal legal agreement between the city council and LPC Living
was completed in May 2006. 19 potential sites were identified for
development within the area, ranging from small infill sites to
substantial proposals on the Radclyffe, St Clements, Hulton Street and
Ordsall District centre sites.
2.14
The agreement gives LPC Living the exclusive right to submit
development proposals for these sites for a fixed period, with a
deadline in May 2011. Development of approved schemes could
continue for several years after 2011.
2.15
The council are committed to reinvesting capital receipts in the Ordsall
area. It was estimated, at that time, that potential receipts from these
sites, including anticipated section 106 monies could realise an
investment fund for infrastructure works totalling £7.615 Million. This
total included both anticipated S106 contributions from partnership
projects and a proportion of contributions from other developers’
schemes in the surrounding area. Current forecasts are set out at
paragraph 3.28.
2.16
An indicative programme of infrastructure works was identified, with the
majority of funds allocated to:
Highways works: specifically the East- West vehicle route and the
North –South pedestrian link.
Public open space improvements and environmental enhancement
Contribution to the costs of constructing the new primary school and
children’s centre
Acquisition of land and premises to secure development sites.
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PROGRESS TO DATE
Consultations
3.1
Following the original consultation on the emerging Framework, in April
2004, the council and LPC have jointly held six further consultation
events, regarding implementation of individual aspects of the
Framework:
o Options for sites in South Ordsall -July 2005.
o Proposals for development of vacant site at Hulton Street – December
2005.
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o Draft proposals for Radclyffe School and District centre sites, health
service issues and aspirations for public services – October 2006.
o Proposals for development of site at Robert Hall Street – April 2007.
o Design workshop on refurbishment of Monmouth Park –June 2007.
o Proposals for the conversion of St Ignatius Church to housing and
development of the adjacent Croft site –July 2007.
3.2
There have also been consultations regarding the Masterplan for
Ordsall Park.
3.3
Attendance at the individual events has been varied, only 17 people
attending the Hulton Street event. Various attempts have been made
to maximise participation at subsequent events, including the use of a
mobile consultation run by Ordsall Community Arts. This has proved
successful with 261 people visiting the October 2006 event.
3.4
Overall, the various consultation events have indicated a broad level of
support to the individual proposals. Only one proposal has attracted
significant local opposition: a proposal to redevelop the site of former
shops on Paris Avenue with low cost housing (and that opposition was
not identified by the South Ordsall consultation event); development
options for that site have been deferred for further consultation.
3.5
Consultation will continue to be held as and when individual projects
are being considered.
3.6
Development Progress
Quay 5: Predating the Development Agreement, and launched in
January 2005, Quay 5, consists of 231 one and two bedroom city style
apartments. The scheme sold out within 6 weeks of the launch. Aimed
at First Time Buyers, prices started at £79,950 and included a secure
car parking space and a concierge service. The design of the scheme
introduced a totally new style to Ordsall showing it as a place on the
move upwards.
3.7
Primrose Hill Community Primary School and Children’s Centre:
Outline planning permission for a new primary school and children’s
centre, to replace the existing Radclyffe and St Clements’s Schools
and the family centre, was granted in December 2004. The building is
nearing completion and will open in September 2007.
3.8
Radclyffe Mews: Planning permission for development of the former
Chetham Close flats and day nursery sites was granted in September
2006. Located overlooking the Grade 1 listed Ordsall Hall, it is
anticipated that this development of 34 new homes will be completed in
the autumn of 2007. Consisting of three 2 bed apartments and thirty
one 2 and 3 bed townhouses, the development was sold off-plan in just
8 weeks at the end of 2006 primarily to residents who lived or worked
in the M5 postcode area.
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3.9
Prices for a 2 bed apartment started at £99,000, for a 2 bed townhouse
£117,950 and for a 3 bed townhouse £136,950.
3.10
Hulton St: Planning permission for development of the neglected open
space and sites of Collingburn Court and Park House, north of Ordsall
Park, was granted in April 2007. Construction of this scheme is
expected to start in late September 2007. When completed, it will
include 260 new homes as well as a tree-lined boulevards and a new
square. It is located overlooking Ordsall Park and it is hoped will
encourage more people to use this important green space.
3.11
The development will be built in five phases and will consist of a
mixture 1,2 and 3 bed apartments and 3 and 4 bed townhouses. The
design is very contemporary and the completed scheme will be unique
within Ordsall providing a benchmark for all future schemes to follow.
3.12
Robert Hall Street: LPC are currently finalising proposals for the
redevelopment of the site of the existing Family Centre and adjacent
vacant site, following the consultation event in April 2007. Subject to
approval of the Development Proposal Notice and planning consent,
this proposed development will introduce 22 new family homes onto
land currently considered an eyesore and magnet for anti-social
behaviour. It will also help to introduce traffic calming measures to
Robert Hall Street as well as providing new frontage to this section of
the road.
3.13
St Ignatius Church: LPC have carried out feasibility studies on the
conversion of the redundant church and rectory into dwellings. Neither
building is in council ownership. However, such a scheme is not
financially viable in isolation and consideration is being given to also
developing the neighbouring croft, which is in council ownership, to
cross-fund works to the church, which is an important local landmark.
Public consultation on the proposals is currently being carried out.
3.14
Radclyffe School Site: The next large site to be developed is due to
be the former site of Radclyffe School. The Framework identifies this
as the site for new retail facilities, replacing the run down District
Centre. Following the consultation event in October 2006, LPC are
developing detailed proposals for a scheme including shops and
residential accommodation. The school closed at the end of the
summer term and arrangements are currently being made to demolish
the redundant buildings. It is anticipated that development proposals
will be submitted to the council later this year with the target of starting
redevelopment in summer 2008.
3.15
Remaining Council–owned Sites: There are two other large sites
scheduled for redevelopment: the sites of the existing District Centre
and St Clements School. LPC are currently carrying out stakeholder
consultation and feasibility studies for these sites. The district centre
site is the agreed preferred location for a new community hub,
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replacing the existing health centre and library, and would also include
new housing, as well as retaining the British Legion. The St
Clements’s School site would be redeveloped for housing.
3.16
The District Centre remains of poor appearance and detracts from the
appearance of the area. LPC intend submitting an outline planning
application for its redevelopment later this year, in order to demonstrate
commitment to its redevelopment. However, submission of a
Development Proposal Notice to the council for a detailed scheme will
not happen until there has been further public consultation.
3.17
There are also several smaller redevelopment sites across the estate,
with no firm programme for consultation and design development.
3.18
Development by Third Parties: The scale of development
implemented under the Development Agreement is small compared to
the scale of recent development in the area by other developers.
Apartment developments have recently been completed, or are nearing
completion, at the Quays campus site on Trafford Road and on sites on
Ordsall Lane.
3.19
Updated Framework Drawing: The original Framework drawing has
been amended to reflect new developments completed, underway and
committed. A copy is attached.
3.20
Infrastructure Progress
The main commitments to the partnership infrastructure budget so far
are a contribution of £2.3 million to the cost of the new primary school
and highway works, to a value of some £2.6 million, associated with
the housing developments at Taylorson Street and Hulton Street.
3.21
Improved Through Routes: The agreed highway works include the
first phases of works to enhance the north-south pedestrian and cycle
route through the estate, currently under construction, and to create a
potential new east-west vehicular route, to be constructed as part of
the Hulton Street development.
3.22
Mini sweeper: One of the conclusions from the first consultation in
1994 conducted by the Salford City Council and LPC Living partnership
was the concern by local residents over the amount of litter on the
estate. The result was the funding through the Development
Framework of an extra street sweeper, known locally as the ‘Ordsall
Litter Bug.’
3.23
Earlier this year, children from the three primary schools were invited to
create a design for this street sweeper and the result is now seen every
Monday, Wednesday and Friday helping to keep the streets of Ordsall
clean. Councillor Maureen Lee said of this initiative: “This is a great
example of how environmentally conscious young people can be at the
heart of a regeneration initiative. It also shows tremendous creativity
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and the striking litter bug design brings real character to our street
cleaning activity.”
3.24
This is just the start of a campaign to help clean up the streets of
Ordsall. The ‘bug’ is to be used to spearhead a campaign to make
Ordsall a litter free zone. Under the banner ‘Have you caught the litter
bug?’ a series of initiatives are planned later this year to encourage
local residents and children to minimise the amount of litter on the
streets of Ordsall.
3.25
Other Works: The infrastructure budget has also contributed to the
improvement of Regent Square Park and the River Irwell Walkway.
The former Longford Church has been acquired and demolished to
facilitate redevelopment of the District Centre site.
3.26
Future Infrastructure Works: As discussed below, the abnormal
costs of remediating contamination on the Hulton Street site
significantly reduced anticipated income, to the extent that
implementation of the scheme requires cross-subsidy from other sites.
3.27
The current forecast is that the investment fund available for
infrastructure works will be at least £7.0 Million.
3.28
Approximately £5.0 Million is effectively committed to date, relating to
acquisitions, the contribution to the costs of the new Primary School,
Regent Square Park improvements, highway works related to the two
approved housing schemes and the mini sweeper.
3.29
The remaining priorities are further acquisitions, highway works, play
areas and public open space improvements. It is currently anticipated
that these remain affordable.
3.30
It is possible that the funds available will be higher than currently
forecast, although this will depend on future market conditions and
cannot be relied upon.
3.31
3.32
Use of Local Labour
LPC have been in discussions with the Salford Construction
Partnership in an attempt to maximise the benefits of local labour
employment to all parties, especially the local residents.
It is considered that, with the focus of regeneration in and around the
Ordsall Ward, local residents are potentially missing out on
opportunities to benefit from this, and LPC and SCP are keen to
promote employment and training opportunities for the longer term, that
are transferable to each new development. The costs associated with
this are going to be injected by LPC (and other developers) direct,
without affecting the individual developments, with costs estimated at
being 1% of construction turnover per development.
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4.1
REVIEW OF KEY ISSUES
Number of New Dwellings
The number of dwellings in the Ordsall estate has now increased to
around 2,350, with the completion of apartment developments along
Ordsall Lane and at Quays Campus (Quay 5, Lambas Court and
Saltra).
4.2
There are an additional 1,100 apartments either under construction or
with planning permission along Ordsall Lane and at Quays Campus,
progressed outside the Partnership Agreement.
4.3
Planning permission has, so far, been granted for 290 dwellings on
schemes within the Partnership Agreement (Radclyffe Mews and
Hulton Street, providing 130 family houses and 160 apartments).
4.4
The current forecast: is that a total of 800 -1,000 new dwellings will be
built under the Partnership Agreement (500 - 600 family houses and
400 - 500 apartments).
4.5
The total number of dwellings in Ordsall (including the estate and
Riverside) is therefore forecast to rise to 4,450. This total does not
allow for the grant of permission for any further dwellings outside the
Partnership Agreement, which is most likely to happen at Ordsall
Riverside, discussed below.
4.6
Ordsall Riverside
The regeneration of the Ordsall Riverside Corridor has become a
higher priority than envisaged in 2004. This is because of both
sustained developer interest and its identification as a strategic priority
by Central Salford Urban Regeneration Company.
4.7
The URC and council have commissioned consultants, Urban
Initiatives, to prepare a masterplan for the Corridor.
4.8
The aim is create a mixed-use area that acts as a waterfront to the
Ordsall estate and takes advantage of the Irwell City Park
opportunities. The importance of the bridge link to Cornbrook is
reiterated. The consultants suggest that the area could accommodate
over 3,000 further dwellings. This is likely to predominantly be
apartments, although over 600 family houses would be included.
4.9
The masterplan is to be used as the basis for a planning guidance
document and there will, through consultation on that document, be
scope for revision to these proposals. It is anticipated that the draft
Planning Guidance will be published for consultation in
January/February 2008. Formal adoption is anticipated in July 2008.
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4.10
4.11
Although there is currently strong developer interest in some sites
within the Corridor, the prospects for seeing such large-scale
development are long term and less certain, compared to
implementation of schemes under the Partnership Agreement.
Affordable Housing
The HMR team’s preliminary analysis of housing need and demand
concludes that the Ordsall neighbourhood housing market supply is
unbalanced and disproportionately weighted to terraced and flat
property types, in addition to the social rented tenure. The low value
and low turnover properties are occupied by a high number of families
with a low income.
4.12
The analysis also indicates a need for affordable family housing for
owner occupation within Ordsall. The affordability gap between Ordsall
and Salford residents, as in much of the North West, is growing and is
limiting opportunities for these people. The average house price in
Ordsall is £102,016. However, this compares to £185,238 in the
adjacent Salford Quays area and £146,346 in the Chapel Street areas.
4.13
The differences in property values when compared to income levels
can be seen to create an affordability gap for residents of Ordsall and
Salford. The average household income in Ordsall is £21,210, which
equates to an affordability ratio of 5. The average household income in
Salford is £30,400, which equates to an affordability ratio of 3.
4.14
The Framework recognised the need to provide a greater housing
choice for both local people and new residents alike and emphasises
the need to develop a mixed and balanced community that ensure a
better social mix, by avoiding the creation of large areas of similar
housing.
4.15
One of the original main aims of the Partnership was to address the
imbalance in tenure and increase the level of home ownership in the
area to bring it closer to National and Regional levels. The initial
priority for provision of affordable housing was accordingly to assist in
reducing the disparity between high and low value properties by
providing opportunities for those families who wish to become home
owners but may struggle economically without the support of a shared
ownership model.
4.16
The Hulton Street scheme provides 52 affordable homes under an
equity share model, which offers residents the opportunity to purchase
the new properties at 75% of the value, with the remaining 25%
payable after 10 years.
4.17
Discussions on the content of remaining phases of development have
attempted to identify appropriate methods of introducing more of an
affordable housing element into the development
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4.18
LPC Living is able to extend the equity share model provided at Hulton
Street to later phases. This model has the advantage of requiring no
subsidy.
4.19
Other shared equity models, which offer a greater range of solutions
that may be attractive to residents in the area, are also being explored.
4.20
Products on offer from Registered Social Landlords (RSLs) include
lower ranges of equity share purchased via a mortgage (35% - 50%),
with a rental charge of 2.75% on the remaining unsold equity.
Additional benefits to the RSL model include:
Recycling of funds to create affordable housing in the future
Increased accessibility to a larger catchment population
Opportunities for homeowners to increase their ownership share.
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4.21
In order to give the broadest possible choice to residents it is
preferable that a combination of the two models is brought forward.
4.22
Discussions are ongoing with RSL partners and the Housing
Corporation to bid for additional resources through the Affordable
Housing Programme. The impact of a successful bid will increase the
range of affordable housing solutions in the area, providing increased
opportunities for those wishing to purchase where the LPC Living
equity share model may be unattainable. However, bids for these
resources will be judged alongside other competing affordable housing
priorities across the city.
4.23
However, demand for social rented accommodation in this area, as in
other parts of the city, has significantly increased since the Framework
was prepared. Consultation with local residents suggests that people
also have a loyalty to the area and would like to remain in Ordsall, but
with opportunities to own their own properties through affordable family
housing. However, there is also a growing concern that many local
families will not benefit from low cost ownership options and that
demand for additional social rented accommodation should also be
met.
4.24
Although the area is currently dominated by social rented housing and
one of the main aims of the Partnership is to address this imbalance of
tenure and increase the level of homeownership in the area to bring it
closer to National and Regional levels, it is important that opportunities
to balance the provision of the right type of social rented property
across the area are not missed.
4.25
The Partnership will need to maintain an awareness of the aim to
create balanced, mixed and sustainable communities. This will entail
careful consideration of future regeneration activity to ensure a balance
of tenure, including the possibility of increased levels of social rented
housing.
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4.26
Consideration also needs to be taken in the context of the growing
housing markets in the area, which are dominated by high value
privately owned or rented apartments. There is the need to reassess
the tenure mix in these developments to consider additional provision
of affordable social rented property types to rebalance the
market across the whole of the area.
4.27
However, the provision of either shared equity or social rented housing
through RSL models require subsidy, even if funding were secured
from the Housing Corporation. Under current projections, such subsidy
is not affordable within the infrastructure budget, which is allocated to
key highway and open space improvements and the primary school.
The Partnership will endeavour to investigate other opportunities and
different funding streams to achieve more affordable housing.
4.28
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4.29
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Public Services
In 2004, the following public services were accommodated in the
estate:
Health Centre
Library
Primary Schools
Youth Centre
Family centre
Fit City
Humphrey Booth day centre
Salford Lads’ Club
British Legion
Places of Worship
Ordsall Community Arts
Since then, there has been significant investment in public services,
with plans for further investment in progress.
The voluntary sector Community Café on Tatton Street has opened.
The former neighbourhood office has been remodelled and extended to
accommodate a playgroup, Surestart offices and community meeting
rooms, in addition to the library and Ordsall Community Arts.
Primrose Hill Community Primary School and Children’s Centre is
under construction, due to open in September 2007, replacing 2 of the
3 existing schools.
The successful lottery bid for Ordsall Hall includes provision for a
community meeting room.
Outline planning permission has been granted for the Oasis Salford
Academy on Trafford Road.
Agreement has been reached, in principle, for the provision of a fitness
suite at Fit City to be funded through a third party S106 agreement.
Salford Primary Care Trust is in the process of reviewing its Strategic
Service Development Plans, which will outline future proposals for the
next tranche of LIFT schemes. This strategy is planned to be
completed by the end of September 2007 and will provide the future
priorities for developments in Salford. Following public consultation, it
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has been agreed, in principle, that Ordsall has a high health need and
that, if approved in September, a community hub would be developed
on a site in the vicinity of the existing district centre, close to the
geographical centre of the estate, but easily accessible from Trafford
Road. It is anticipated that the hub would contain health, library and
public information facilities. Details of the functional content of a
proposed centre will be worked upon in more detail and will be based
upon service need both from a health perspective and the council
services.
4.30
A review of the needs of the future population of the area carried out by
service providers in 2005 identified some gaps in current provision in
the area. However, it was anticipated that these would all be met by
the provision of the Primrose Hill Children’s centre and the proposed
community hub.
4.31
The only other identified need for investment in new premises related
to the youth service. The youth service occupies the former Sea
Cadets premises on Ordsall Lane. This was intended as a temporary
solution following the demolition of the purpose-built youth centre at
Quays Campus. The layout of the building is poor; it is incapable of
meeting DDA requirements, some areas are inaccessible on health
and safety grounds and staff supervision is difficult. The building’s
position, in between the junction of two busy access roads and directly
opposite a senior citizens residential facility, has also added to the
inappropriateness of the facility. For these reasons, capacity of the
building is limited to 30 people per session and the longer-term
operation of the service from this building must be in question.
Although Ordsall also benefits from the asset of the Lads’ Club, it is
clearly desirable that fit-for-purpose premises replace the existing
youth centre. The Youth Service has constantly maintained that there
is a need for the original centre to be replaced with a similar building,
but that such a replacement will have a major investment implication.
The service is at present conducting a facility review and is completing
a move towards a locality based delivery approach. Both of these are
nearing completion and should be finished by September 2007.
However, it is uncertain whether a replacement building in Ordsall will
emerge as a priority in the service premises strategy. In the absence
of any brief setting out site/building requirements, it is difficult to set
aside a site or consider any other options for future development of a
new youth centre. Given the anticipated rate of new development, the
option of identifying a new site will soon be exhausted. If a site for a
replacement youth facility is to be safeguarded, there is, therefore, an
urgent need to identify site/building requirements and funding.
4.32
The consultation exercised carried out in October 2006 revealed no
significant demand for any particular community facilities other than
those currently existing or planned. Indeed, some concern was
expressed that there was an excess of community meeting space in
the area, adversely affecting the business plan of the Community Café.
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4.33
Play Areas and Open Spaces
Ordsall Park is seen as the main focus for most open space activity in
the area. Once the new houses on the Hulton Street site have been
occupied, the current lack of casual surveillance across the Park will be
remedied, helping protect any subsequent investment. Environment
Directorate has prepared a Masterplan for the Park, under the “Parks
for People” strategy.
4.34
The estimated cost of implementing the masterplan is estimated as £2
million and funding has yet to be identified. The partnership
infrastructure budget makes no allowance for a contribution to this
project, although S106 contributions are anticipated from developments
in neighbouring areas, particularly Salford Quays, which can potentially
make a significant contribution to the costs.
4.35
The original Framework suggested that part of Monmouth Park should
be developed for housing. Subsequent local consultation revealed
support for retention and enhancement of the Park. Detailed plans are
currently being drafted, following a successful workshop event
involving local residents in the design. It is anticipated that
refurbishment will be carried in spring 2008.
4.36
New play equipment and environmental improvements have been
completed at Regent Square Park.
4.37
The original framework identified 5 potential sites for new local
equipped play areas LEAPs). None have yet been installed, although
plans for a new play area are included within the Ordsall Park
Masterplan and consultation on a proposed play area in the grounds of
the neighbourhood building is due later this year.
4.38
The other 3 identified sites are all very close to existing houses. One,
in South Ordsall, has already been subject of local consultation and
has been dropped in view of neighbour objections. It is unlikely that
planning permission could be secured for any of these 3 sites in the
face of neighbour objections. Given the built-up nature of the area,
there are no alternative sites, sufficiently distant from houses, suitable
for provision of LEAPs, to the standards set out in the Greenspace
strategy.
4.39
In view of the anticipated difficulties of delivering play facilities through
the sites identified in the masterplan, the Partnership will work to
identify a range of alternative opportunities, including the use of street
scale and public realm infrastructure. This could include less formal
areas of open space, small-scale play facilities and landscape areas.
This will also help to address local aspirations as described in section 6
below.
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4.40
East West Road
The proposal to create a through vehicular route across the estate has
not yet been the subject of detailed consultation and there is a risk of
objection, particularly from neighbouring residents.
4.41
The new access to the Hulton Street development is designed to form
the first phase of the east-west route, although the design also works
as a free-standing access. Implementation of this new road will
demonstrate the standard of traffic calming proposed along the new
route.
4.42
Proposals for completion of the through route are to be developed and
consulted upon as part of plans for St Clements School site.
5
THREATS AND OPPORTUNITIES
5.1
Over the last three years, there have been several changes in
circumstances, with potential implications for the regeneration of the
area, which could not have predicted.
5.2
New Development Proposals
Although Salford Quays has been well established for many years, the
development of mediacity:uk and the arrival of the BBC is a new
factor that will have unpredictable impacts on the demand for housing
in Ordsall, local employment opportunities and accessibility.
5.3
The proposed development of the Oasis Academy high school was
not anticipated three years ago. It will significantly improve local
educational opportunities and offer additional community facilities. It
will significantly improve the attractions of Ordsall as place to live for
families and so assist the marketing of new houses.
5.4
The new school site does not allow for the on-site provision of playing
fields. Consideration is being given to a combination of shared use of
pitches in Ordsall Park, with access to dedicated, shared detached
school provision elsewhere in the city. However, use of the redundant
site of St Clements’ Primary School as a dedicated school playing field
is also being considered.
5.5
Moreover, the open space at St Clements School is protected under
education legislation. Even if not required by the Academy, DfES
approval to its disposal is unlikely. Consideration is being given to
exchanging the protection to another site, outside Ordsall, but until this
is confirmed, there is a risk that redevelopment of the St Clements
School site will be prevented, reducing the number of new houses
developed.
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5.6
Contamination
It was always anticipated that, on previously-developed inner-city sites,
redevelopment would require mitigation of some contamination.
However, detailed site investigations at both South Ordsall and Hulton
Street revealed unacceptable contamination hot spots.
5.7
An initial discovery of low levels of chemicals in a number of soil
samples was found during routine site investigations on land in South
Ordsall; these were in the main hydrocarbons, arsenic and metals.
Similar results were found at Hulton Street. It is unknown as to how
exactly these came to be in the soil, although they may be as a result
of in-fill of soil after the war and prior to the redevelopment of the area
in the 70’s. Bonfires and burning of stolen cars may also be a factor.
5.8
The site investigations in South Ordsall were initiated shortly after
investigations at the Radclyffe Mews site showed elevated levels of
arsenic, metals and hydrocarbons. This contamination was remediated
as part of the development of the site and, at the same time, LPC
arranged remediation of the communal garden to the rear of the
cottage flats on Paris Avenue.
5.9
The design of the Hulton Street scheme was significantly constrained
by the need to avoid removal of contaminated land. Even so, the net
cost was significant, as outlined above, making the scheme unviable
without cross-subsidy.
5.10
Contamination at Hulton Street was found to be contained within the
development site, with no risk to neighbouring dwellings. However, the
results in South Ordsall identified potential contamination within
existing housing areas. Advice was sought from the Health Protection
Agency, who advised that such levels posed no cause for concern in
the immediate future, suggesting precautionary guidance in the interim,
until results of the further site investigations were known. A successful
and comprehensive consultation exercise took place in the area during
March.
5.11
Further site investigations in a 50m zone around Paris Avenue/Gledhill
Avenue flats were carried out towards the end of April and a report is
due from the consultants in the next few weeks. Any future
implications are unknown until results become available.
5.12
Initial site investigations on other proposed development sites have, as
expected, revealed contamination, but not at the levels found on the
first sites. The financial projections quoted above make some
allowance for likely remediation costs. However, there is a risk that
detailed site investigations will revealed further hotspots, which would
affect the viability of individual schemes and reduce the funds available
to the infrastructure account.
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5.13
Market Appraisal
Implementation of the Framework is entirely dependant on the
successful private sector development of new housing. The success of
the partnership is therefore at risk from a downturn in market
confidence. The speed of sales at Quay 5 and Radclyffe Mews has
been very encouraging. However, with recent interest rate rises the
market is believed to be nearing it’s peak.
5.14
LPC view this as a risk; but remain confident that, with the target
market of first time buyers and homes for local people with housing
under £200,000, the new properties remain of interest and within
reach; it will be the higher value properties that will be affected in the
first instance. Developments such as Hulton Square are already
generating interest, before any marketing has taken place, with some
225 people already registered for a brochure and price list.
5.15
Another factor that offers some confidence to LPC is that the housing
market surrounding the Framework area is currently being developed
predominantly with high value apartments; Radclyffe Mews, Hulton
Square, and the future developments through the Framework are the
only schemes in the area that will yield any “more traditional” types of
dwelling. The sales achieved at Radclyffe Mews suggest there is a
high demand for family style dwellings.
6
LOCAL OPINION
6.1
Ordsall Community Forum was invited to review the Framework at its
meeting on 17 April 2007. Forum members responded to three basic
questions:
o Is the Framework still the right vision for Ordsall?
o Has the Framework been implemented successfully so far?
o Should we re-think our priorities?
6.2
The Forum’s response was positive on all three questions. The
consensus was that the Framework remains the right vision for Ordsall
and that it had been implemented successfully so far. The approach to
implementing the Framework is valued, leading to good levels of
consultation. It is felt that the approach demonstrates the Council’s
commitment to involving local residents and that it listens to their
concerns. The conclusion was that there was no need to re-think
priorities.
6.3
Other issues which emerged during the discussion on 17 April were:
o An enthusiasm for more green space or retaining existing green space.
New green space ought to include areas that are of general amenity
and not necessarily formal spaces and play areas etc.
o Concern about any large increase in local population. This includes
developments in other parts of Ordsall, for example, along the
18
o
o
o
o
o
6.4
o
o
o
o
o
Riverside, and not specifically partnership developments on the main
Ordsall estate.
Arising from concern with population increase is the likelihood of
significantly more children living in the area and whether local services
will be improved as a result, for example, can youth services and the
youth centre be expanded?
Also there is concern about the potential for an increase in traffic flow
or congestion problems, in particular on Ordsall Lane and Trafford
Road, and associated air quality issues.
The general observation, made at the Forum many times, that the area
is poorly served by public transport, was made again. Public transport
would need to improve to cope with new demand from new residents
and to help minimise traffic problems.
Further car parking problems were also suggested. Maximum car
parking standards could lead to more on-street parking and that family
housing should be able to accommodate enough family cars so as not
to create access problems for service vehicles. Car parking is an
existing local issue, particularly on football match days.
The Forum also asked about efforts which will be made to integrate
new communities, both within and around the main estate, with
established communities in Ordsall.
These issues will be addressed, either through implementation of the
Framework or by other council initiatives:
A net loss in open space for new housing development is a key strand
of the framework, with neglected and underused open space replaced
by smaller amounts of higher quality open space. However, the need
to also retain appropriately located areas of informal open space is
recognised and opportunities will be considered as each remaining site
comes forward for detailed consideration.
A significant increase in population, to support a greater range of
services, was also a key strand of the Framework and it is considered
that this is still appropriate. However, the cumulative effect of all
development and regeneration activity in Ordsall and surrounding
areas of Central Salford on the character and amenity of the area will
need to be considered. This will be addressed in partnership with the
URC.
The impact of the planned increase in population, and the anticipated
growth in numbers of children will be addressed by the service reviews
of individual directorates, including the current Youth Services
premises review.
Issues of increasing traffic congestion, loss of air quality and the
paucity of public transport, are not unique to Ordsall and need to be
addressed at a larger scale. Work is underway to address these
issues, both across Central Salford and across Greater Manchester, for
example through the Greater Manchester Transport Plan and the
Transport Innovation Fund.
The impact of national and local policy to restrict provision of parking
facilities on on-street parking congestion is not unique to Ordsall.
Urban Vision Partnership’s traffic management team will continue to
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monitor and address any specific problems, including the specific local
issue of match day parking.
o The Framework seeks to physically integrate existing and new
residents and different tenures, through layout and design. However,
complementary community support to help manage such rapid
transformation is also needed. The existing neighbourhood
management service has the key role in this work and the URC are
developing proposals to give further support to communities such as
Ordsall. Agencies such as the Community Café, SAYO (Sport and Arts
for Youth in Ordsall) and Ordsall Community Arts, whose funding is
uncertain, can also play a key role.
o The Ordsall/Langworthy Community Committee recently agreed work
to integrate new and established communities as a priority to be
included in the Community Action Plan 2008-2009.
7
CONCLUSIONS AND KEY ISSUES
7.1
The Ordsall Development Framework is still considered to still be the
appropriate basis for continuing the regeneration of Ordsall. The first
housing schemes developed through the partnership with LPC Living
have successfully secured planning permission, and appear to be
welcomed by local residents and to be commercially attractive to new
residents.
7.2
It is anticipated that the partnership in Ordsall will successfully provide
the type of accommodation and appropriate neighbourhood settings
and facilities that will help to attract families to live in Salford, so
helping achieve key council priorities.
7.3
Implementation of the framework is at an early stage, but the pace of
development is picking up. Decisions in respect of the few key large
sites will be taken over the next few months.
7.4
It is anticipated that council approval to detailed proposals for all the
sites will be completed before the development agreement with LPC
Living expires in May 2011. However, should that not be the case, no
reason is seen why the agreement period should not be extended: the
partnership is working well and any slippage is likely to be attributable
to external pressures.
7.5
The infrastructure budget is forecast to be in balance. However, it
must be noted that current forecasts of income do not allow for any
subsidy to provide affordable housing, new public buildings, or to
contribute to Ordsall Park.
7.6
The equity share model developed by LPC can ensure that 20% of all
new dwellings are available as affordable housing, but reliance on this
single model across the whole framework area may not present an
affordable solution to many residents. Although bids for additional
resources through the Affordable Housing Programme are being
20
prepared these bids will be competing alongside other affordable
housing priorities across the city. The Partnership will also bid for
other sources of funding to increase the range of affordable housing
solutions for residents in the area, such as through the Governments
First Time Buyers Initiative. Greater diversity in housing tenure would
also be preferable but, given the high proportion of social rented stock
already in the area, the concentration on providing new owneroccupied property is considered acceptable at this time.
7.7
The scale and speed of the repopulation of Ordsall is, at one level,
encouraging. However, as identified by the Community Forum, this
presents potential difficulties of integrating new and old communities.
The timely provision of community services, including new buildings,
will be vital if regeneration is to be sustainable. Agencies such as the
Community Café, SAYO (Sport and Arts for Youth in Ordsall) and
Ordsall Community Arts, whose funding is uncertain, can also play a
key role.
7.8
Provision of a new community hub, including enhanced health facilities,
is a key and urgent priority to meet the needs of existing residents and
to help make the area attractive to new families, as well as facilitating
the redevelopment of the unattractive district centre site. Discussions
with the PCT are progressing well in respect of the identification of a
potential site. Subject to the final outcome of the PCT’s Strategic
Service Development Plans, detailed proposals will be drawn up to
capture the full requirements of the community. As with other LIFT
projects in Salford, procurement is carried out through a national NHS
procurement process with our local LIFT Co and will be subject to
affordability limits set within the PCT and the Council.
7.9
Provision of a new youth centre is also a priority for Ordsall Community
Forum, but it is uncertain whether this will emerge as a priority in the
emerging citywide service strategy. Unless a commitment to a
replacement facility is made and site/building requirements identified
very soon, opportunities to locate such a facility will be exhausted.
7.10
Provision of a variety of quality open spaces is essential to creating a
sustainable community. Given the built-up nature of the area, there will
be difficulties in meeting all the standards sought in the Greenspace
Strategy and further work is needed to identify alternative ways of
providing open space.
7.11
Issues of increasing traffic congestion, loss of air quality and the
paucity of public transport, as identified by the Community Forum, are
not unique to Ordsall and need to be addressed across Central Salford
as a whole. Failure to address these issues will also undermine the
success of the Framework.
DEREK ANTROBUS
PETER CONNOR
21
Lead Member for Planning
Lead Member for Housing
AUGUST 2007
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