Salford City Council
THE EXCHANGE
Greengate, Salford
PLANNING GUIDANCE
Consultation Draft
June 2006
The Planning Guidance for The Exchange, Greengate is at a draft stage and is
subject to public consultation during the period 14 July to 24 August 2006.
Any comments on the draft Guidance should be sent to the address below to be
received before the end of this period:
The Exchange, Greengate Planning Guidance Consultation
Planning Regeneration Section
Salford City Council
Salford Civic Centre
Chorley Road
Swinton
M27 5BW
All comments received by 24 August 2006 will be taken into account and the
Planning Guidance amended where appropriate. It is anticipated that the final
version of the Guidance will be adopted by the City Council in October 2006.
CONTENTS
Part One:
Introduction
Part Two:
Purpose of this Document
Part Three: Planning and Regeneration Context
Part Four:
The Exchange Development Framework (June 2005)
Part Five:
Development Progress
Part Six:
Planning Guidance
Part Seven: Implementation and Monitoring
Part Eight: Planning Obligations
Part Nine:
Planning Applications
Part Ten:
Plans
Appendix A: Key Policies in the City of Salford Replacement UDP
2004 – 2016 supported by this Planning Guidance
Appendix B: Consultation and Public Involvement
Appendix C: Contact Details
Part One:
Introduction
1.1
The Exchange, Greengate is an astonishing paradox. It is the historic
core of Salford, overlooked by Manchester Cathedral. It is only five
minutes stroll from Victoria Station and the shopping heart of Manchester
and yet it has been abandoned to decades of neglect due to its separation
from the City Centre to which it rightly belongs.
1.2
Over the years, the River Irwell and the viaducts of the former Exchange
Station have acted as unwelcome physical barriers to economic activity
and investment. They have divided Salford and Manchester where these
two great Cities should be joined. Greengate has been a dead and semi
derelict space dominated by surface car parks, empty and dilapidated
buildings and vacant and overgrown land. It has not enjoyed the
resurgence and renaissance experienced by other parts of the City Centre
– until now.
Part Two:
Purpose of this Document
2.1
This Planning Guidance relates to the intention to establish The
Exchange, Greengate as a dynamic new part of the City Centre. The
area’s 13 hectares of vacant and underused land and buildings will be
transformed into a distinctive and diverse mixed use urban quarter, a
catalyst to a new phase of cross city regeneration in Salford and
Manchester and helping consolidate the Regional Centre’s European
status.
2.2
The transformation will combine high quality commercial and residential
properties with leisure uses, dramatic public spaces and new waterside
environments.
New urban forms will be interwoven with existing
architecture and streetscapes to create an area that is both distinctly
modern and heritage rich.
2.3
The policies set out are intended to provide clear guidance to stakeholders
in the development process – landowners, local businesses and residents,
statutory agencies, public sector organisations and private developers.
The Guidance aims to ensure that new development in The Exchange
area is not only of exceptional design quality but also that it is integrated
with the surrounding area and that linkages between other regeneration
initiatives in the City Centre and Chapel Street are successfully achieved.
2.4
The Guidance has been prepared by Salford City Council to set out the
guidelines which the Council as Local Planning Authority will use as a
material consideration in determining applications for planning permission
and other matters in The Exchange area. In addition, it establishes a set
of principles to ensure the appropriate mix of uses and high quality design
in new development. It provides an important contribution to the
successful planning of the area in a situation where a number of different
developers will be bringing forward individual sites.
2.5
Applicants for planning permission will be expected to demonstrate how
their proposals address the principles covered in this Guidance along with
the wider policy framework established in the City of Salford Replacement
Unitary Development Plan (UDP) 2004 – 2016, planning documents
forming part of Salford’s Local Development Framework, the Regional
Spatial Strategy for the North West and national planning policy.
2.6
At this stage, the Guidance is a non statutory Planning Document but it is
set within the planning policy framework provided by the Replacement
UDP for Salford. It is intended to incorporate the Guidance into the City
Council’s Local Development Framework in due course and as
appropriate.
Part Three: Planning and Regeneration Context
A)
PLANNING POLICY CONTEXT
3.1
This Planning Guidance is intended to complement rather than duplicate
other local development documents and national and regional planning
policy. In particular, it expands on the policies of the Regional Spatial
Strategy for the North West and the City of Salford Replacement UDP with
the aim of ensuring all new development in The Exchange achieves the
highest standards of quality and design.
3.2
The following policies of the Regional Spatial Strategy are supported by
this Planning Guidance:



DP3 – Quality in New Development
UR1 – Urban Renaissance
UR10 – Greenery, Urban Greenspace and the Public Realm
3.3
Key policies of the City of Salford Replacement UDP 2004 – 2016
(adopted 21 June 2006) that are supported by this Planning Guidance
are set out in Appendix A.
3.4
In addition to the Replacement UDP, the City Council has produced (and
is producing) other guidance as part of its planning policy framework for
the city. Details of all the planning documents currently in force and a
timetable for the adoption of new documents are set out in the Council’s
Local Development Scheme. This Planning Guidance is supported by a
number of these documents as well as other non statutory advice
including:




Supplementary Planning Document: Design and Crime (to be
adopted July 2006 )
Supplementary Planning Document: Planning Obligations
(Consultation Draft May 2006)
Supplementary Planning Document: Housing (Consultation Draft
May 2006)
‘Encouraging Better Design’ Planning Applications Leaflet 2
B)
REGENERATION CONTEXT
3.5
The Central Salford Urban Regeneration Company (URC)

The Central Salford URC aims to transform Central Salford over the
next 20 years, guided by a new vision and regeneration framework. It
intends to unlock private sector investment leading to a significant
number of new job opportunities. The URC is a private/public sector
partnership led by the private sector and actively supported by its
founder members – Salford City Council, English Partnerships and the
North West Regional Development Agency. The URC covers an area
of over 2,000 hectares, including The Exchange site.
3.6

The transformation of Central Salford will include dramatic
improvements to the City’s infrastructure, the development of business
premises, mixed-tenure housing (private and affordable housing),
improved schools, safe and inspiring open spaces, new community
and leisure facilities, retail outlets and an improved transport
infrastructure. The aspiration is to create a world-class living, working,
learning and leisure environment.

The URC is currently finalising its Regeneration Framework and
Business Plan which will be published in the summer of 2006. The
Framework and Business Plan identify a number of Transformation
Areas and priority projects within those Areas where public and private
investment will be focused over the next three years to stimulate
regeneration. The Exchange, Greengate is a priority project within the
Chapel Street/ Crescent Transformation Area. Other adjoining priority
projects include the traffic calming of Chapel Street, the development
of Salford Central Station and improved accessibility along the River
Irwell.

The Regeneration Framework has also incorporated the objectives and
delivery of the Chapel Street Regeneration Strategy managed by the
City Council since 1998. This made significant progress in the
revitalisation of the Chapel Street area and has been particularly
successful in raising awareness of its regeneration potential resulting
in new mixed use schemes, improvement of environmental quality and
extending the City Centre into Salford.

The URC’s Regeneration Framework will also be an important material
consideration for the City Council in determining planning applications
in The Exchange area. Applicants will be required to demonstrate that
their development proposals comply with the Framework and
contribute to meeting its overall objectives.
Relationship with Manchester City Centre
 The Manchester City Centre Strategic Plan 2003 – 2006 recognises
the area of Chapel Street within the Inner Relief Route (Trinity Way) as a
constituent geographical zone of the City Centre – this includes The
Exchange, Greengate.
 The proposed transformation of The Exchange is a unique opportunity
to reconnect the historic cores of both Cities, physically and symbolically,
to ensure that the City Centre continues to grow and consolidate as a
place of European status. In recent years, the Manchester side of the
Irwell has undergone an extraordinary transformation to become a vibrant
cultural and retail hub for the City Centre. The creation of the Millennium
Quarter has seen improvements to the Cathedral and Cheetham’s Music
School, the building of Urbis and major international quality public open
spaces at Cathedral Gardens and Exchange Square.
Further
redevelopments are proposed around Victoria Station to link into the
Manchester Arena.
 Continued joint working between both Cities and the coordination of
development frameworks including the renaissance of the River Irwell will
ensure a new City Centre destination, unique in scale and character and
of undoubted national significance.
Part Four:
4.1
The Exchange Development Framework (June 2005)
The Area’s History
 Greengate is the original historic core of Salford. In the mid 1800’s,
some two thirds of the population of the City lived in the Greengate
District. By the 1930’s, it was in a state of decay and declared a slum
clearance area.
 Extensive clearance was carried out following the Second World War,
after which the area was developed for large scale industrial and
manufacturing purposes. Following the gradual decline of these industries
in the 1970’s and 80’s, the area became occupied by a mixture of
generally low grade employment uses, together with long stay surface car
parking for city workers and shoppers. Nevertheless, the area still
remains home to several important and innovative companies who can
contribute to Greengate’s future.
4.2
The Need for a Development Framework
 Since the 1980’s, the City Council in partnership with others, made
some limited interventions in Greengate to stem some of the more
negative impacts of decline – including addressing traffic and
environmental problems. However, such interventions were not of a
sufficient scale to revitalise the area.
 The combination of Government policy, new landowners, increasing
developer interest, the rebuilding of Manchester city centre and, most
recently, the establishment of the Central Salford Urban Regeneration
Company means that there is now the opportunity to secure the major
transformation of Greengate.
 In order to achieve this transformation, in 2003, Salford City Council
formed a new partnership with two of the other key landowners in
Greengate, ASK Property Developments and Network Rail, to produce an
imaginative and creative Development Framework for the area.
 Feilden Clegg Bradley Architects were appointed to lead on the
preparation of this Framework. The area covered comprises some 13
hectares of land, bounded by Trinity Way (the Inner Relief Route), the
River Irwell, Chapel Street and Victoria Bridge Street and Blackfriars
Road. Feilden Clegg Bradley were appointed in January 2004 and the
draft Framework was completed by the autumn of that year. The final
document was approved in June 2005.
4.3
The Exchange Greengate Development Framework
 The Framework’s overall vision for The Exchange, Greengate is of a
new City Centre place which celebrates the River Irwell and reconnects
Salford and Manchester. It will be a dynamic mixed use destination in its
own right, ensuring that the city centre as a whole continues to grow and
contributing to its commercial residential and cultural offer.
 The Vision is underpinned by a number of strategic objectives which
help define the type of place The Exchange can become. Key principles
are to:

Create a cohesive, vibrant, mixed use area, with its own distinctive
sense of place and character, recognising the opportunity to draw
energy and activity from within Manchester City Centre, across the
river and into the area beyond the railway viaduct;

Identify the required interventions needed to deliver long term
qualitative change in the built environment, creating social and
cultural opportunities for a divergent population;

Create a land use pattern which significantly enhances the profile
and environment of the area, allows for a new density of
development and encourages the emergence of a thriving
economic and residential location;

Build on the diversity of the area’s historic waterfront and urban
environment, including imposing railway viaducts, to create places
which are lasting and memorable and where people want to live,
work, invest and visit;

Create clear physical linkages between development sites, through
the area and outwards, to encourage economic and social
integration with the commercial core of Manchester City Centre, the
Chapel Street corridor and Central Salford as a whole;

Promote a well conceived movement pattern and structure, urban
in scale and of exceptional design quality, with flexibility to evolve
and change over time.
 The Development Framework establishes the key principles of urban
form, density and massing, new public realm, accessibility, circulation and
transport which have been adopted in this Planning Guidance.
 Consultation has been undertaken during the preparation of the
Development Framework in order to:


Raise awareness of the planned regeneration of Greengate

Encourage discussion about the area’s potential and a commercial
strategy to deliver new development

Seek ideas and opinions from local businesses and other interested
parties.
Details of the consultation are set out in Appendix B.
Part Five:
Development Progress
5.1
Before and during the preparation of the Exchange Development
Framework in 2004 and 2005, a number of key development schemes
have been submitted to the City Council.
Some proposals were
considered in the context of the emerging Framework to ensure an
appropriate architectural and spatial ‘fit’ with the recommended design
principles, others were given consent before this process forward (see
10.3) The schemes are now either complete or under construction.
5.2
They represent the beginning of the qualitative change to create the
distinctive character and sense of place envisaged for Greengate into the
future. However, they should not be regarded as a design ‘template’ to be
copied throughout The Exchange.
A) Spectrum, Blackfriars Road




This is a mixed use development by Dandara for 578
apartments, 2300 sq m of retail and office floorspace and
associated landscaping.
The scheme includes four rectangular towers (15 and 13
storeys high) set in pairs at right angles to Blackfriars Road.
These are at the heart of the site and around the perimeter are
smaller buildings ranging in height between eight and three
storeys, all of which contain active uses at ground floor level
Materials take their reference from the dark brickwork of the
adjoining railway viaduct with a lighter grey terracotta and
glazing treatment to the upper storeys of the four towers.
The scheme is well designed and of high quality, reflecting
the principles laid down in The Exchange Development
Framework. The street frontage on Blackfriars Road
complements that on the opposite side that contains a number
of listed buildings
B) Abito Apartments, Greengate


This development is a nine storey building comprising 256 one
bedroom apartments with 850 sq m of retail/commercial
floorspace at ground floor in a total of six units.
The apartments are specifically designed to offer cheaper City
Centre residential accommodation to young professionals, each
comprising a single room divided into various plots by a
freestanding central unit with all services.
C) The Approach, Chapel Street


This scheme is a seven storey building at the corner of Blackfriars
Road and Chapel Street. – it includes 54 apartments with 760 sq
m of retail/commercial floorspace at ground level. A tower
element fronting Salford Approach adds an additional storey.
It is constructed predominantly in brick to match the adjoining
listed former Police Station with natural stone at ground floor
level. There are glazed corner features and the top storeys
feature glazing predominantly. The scheme is in context with the
character of its surroundings.
D) The Cocoa Rooms, Chapel Street


This development is the refurbishment of the vaults beneath
Cathedral Approach into a bar/restaurant. The scheme
significantly improves an existing use and exploits the riverside
location and the historic environment of the arches and bridge
structure.
It has introduced for the first time a quality bar and restaurant in
this part of Greengate and will act as an attractor for people to
cross the river into the area.
E) The former Police Station, 62 Chapel Street

This important listed building has been sensitively converted and
refurbished as architects offices.
Part Six:
Planning Guidance
A.
STRATEGIC GUIDANCE
6.1
A Sense of Place: Key Principles
(i)
Character
POLICY EG 1
The regeneration of Greengate will result in a new and vibrant part of
the City Centre with a range of functions including commercial,
residential, cultural, retail and leisure uses. It will be characterised
by exceptional architecture, high quality public spaces and a
distinctive waterside frontage with new connections between the two
cities. It will be an area where there is on street activity and
pedestrian life and movement.
The Exchange Greengate will become its own immediately recognisable
place with a distinctive sense of character providing a diversity of essential
functions and accessible to all. It will deliver living, working, social and
leisure opportunities for a new and divergent population which will include
over 5000 residents and a working population of some 4000 people.
(ii)
Land Uses
POLICY EG 2
Development of Greengate will provide a mix of uses to help create a
vibrant and interesting community which has activity during the day
and evening throughout the year and which would be expected in a
new City Centre quarter.
Over the next 15 years, The Exchange has the capacity to deliver over
3.25 million sq.ft of development floorspace. The precise mix of uses
appropriate for the area is not rigidly set out – the mix of development
activity will be informed by both commercial and economic considerations
and the need to offer a diversity of facilities for all those who want to live,
work, visit and enjoy themselves in Greengate.
Residential Development
The emphasis on residential development activity is driven by the need to
establish a sense of place within Greengate, a place that houses and
supports a significant local population.
It also reflects the immediate
proximity of the traditionally defined central business district of the city
centre and recognises that this are will continue rightly, to be the major
draw for commercial occupiers and activity.
The Greengate area is surrounded by new and emerging residential
communities. The Exchange has the potential to offer a superb living
environment in the heart of the City Centre. The type, size and tenure of
new residential schemes will be in accordance with the City Council’s
Housing Supplementary Planning Document which is currently being
produced. This provides detailed guidance on the requirements for new
development. Copies are available from:
Spatial Planning
Salford City Council
Salford Civic Centre
Chorley Road
Swinton
M27 5BW
Single use residential schemes are unlikely to be acceptable and should
include a significant proportion of non residential uses. In particular,
actives uses should be located at ground floor level on all principal vehicle
and pedestrian routes and fronting public open spaces and the riverside.
Ultimately, it is anticipated that the Exchange can accommodate around
2,600 new homes.
Commercial Development
It is assumed that the area can accommodate new commercial
development in the order of 1 million sq.ft. There is a mix of potential for
large floorplate commercial schemes as well as smaller floorplate
buildings (perhaps offices for owner occupation) set within a high quality
environment. It is expected that the area will appeal to office occupiers
with smaller and more flexible space requirements. It is not anticipated
that the area will provide direct competition to the traditional centre
business core of the City Centre.
Retail and Leisure Development
The Exchange has the potential to accommodate a sensitive mix of
smaller scale leisure and retail opportunities which is consistent with the
role of other similar parts of the City Centre. The retail and leisure
components that come forward will therefore complement and strengthen
the City Centre rather then compete with it.
Retail and leisure facilities will consist of predominantly of ground floor
amenity retailing activity together with associated bar/ restaurant and other
leisure uses. These uses are seen as particularly appropriate too the
more accessible railway arches fronting Greengate and Chapel Street and
as frontages to the new areas of public realm.
Subject to demand, there are possibilities to introduce new retailing
including markets under the railway viaducts and within the open space.
In this way, visitors will be encouraged to cross the river to enjoy new
facilities in a high quality environment. The new Greengate Square will
offer particular opportunities for ground floor active frontages and
specialist markets.
Other Uses

Other appropriate uses within The Exchange include:






6.2
Tourism including hotels
Cultural and creative uses
Knowledge based employment including live/ workspace
Community facilities
Essential infrastructure and support facilities
In determining the appropriate mix of uses, regard will be had to the
positive impact on regeneration, the objective to maintain a balance of
different uses, the contribution towards securing activity during the day
and evening and proximity to pedestrian and transport routes.
River Irwell Corridor
POLICY EG 3
The regeneration of Greengate will re-define the role of the River
Irwell as a point of inter connection between Salford and Manchester.
There will be an extended and enhanced pedestrian and cycle route
along the River edge, regularly linking back into the network of
streets and squares.
 New development should support the role of this length of the River
Irwell as Central Salford’s major recreational, landscape and ecological
asset. In particular, it should provide walkways as part of a continuous
riverside pedestrian and cycle route and active frontages along the river
edge to enhance safety through overlooking.
6.3
City Centre Transportation
POLICY EG 4
The Exchange is very well placed for public transport provision and
for people coming to the City Centre by car. New transport networks
and associated developments should achieve a balance between
ensuring that it is as easy as possible to get into Greengate whilst
minimising the impact on people being able to move around the area
itself. A major objective is to encourage a switch to public transport
to reduce the impact of the car.
 Transport considerations will play a crucial role in successfully
redeveloping this part of the City Centre but cannot be considered in
isolation from the rest of Manchester’s Regional Centre. In line with the
Strategic Traffic Management Plan, two key objectives are to:

improve the environment, attractiveness and safety of the City
Centre

increase the proportion of trips made by public transport, by cycling
and on foot and to reduce the proportion made by car.
 The transport strategy for the City Centre continues to be developed
but some of the core principles for Greengate will be:

improving the pedestrian environment on Greengate’s main streets
by the removal or restriction of traffic

buses will continue to form the backbone of public transport
connections between central Manchester and the Chapel Street
corridor. The routing of buses in and through Greengate, bus
priority measures and the location for bus stops will be reviewed as
development progresses.

experience shows that Metro Shuttle bus services are without a
doubt a substantial influence in connecting different parts of the
City Centre.
Further extensions to serve and connect The
Exchange will be considered in future.

measures will need to be designed in to ensure that the links with
heavy rail and Metrolink services at Victoria Station are maintained
and improved.

the Greengate area currently provides a significant amount of
surface car parking used by both City Centre commuters and
shoppers. It is anticipated that The Exchange will create and retain
over 3000 car parking spaces in total. Car parking will remain the
predominant use for the railway viaduct vaults with the levels of
current provision retained by more efficient use of space. Bespoke
car parking provision for new development blocks is envisaged
within the curtilage of individual schemes, the majority of the new
city blocks offering the potential for underground or concealed
frontage parking. Sites for new multi storey car parking schemes
may need to be considered.
6.4
Environmental Sustainability
POLICY EG 5
All proposals for new building within The Exchange, Greengate
should accord with the principles of sustainable development and
should make a positive contribution to the delivery of a sustainable
environment.
 Sustainable development is acknowledged by the UK Government in
its Planning Policy Statement 1 as being the core principle underpinning
the planning system.
 When seeking planning permission, applicants should therefore
consider the introduction of various sustainable mechanisms which are set
out in 6.10.
 These and other ways of minimising carbon emissions should be
encouraged as development progresses within The Exchange area, as
should opportunities to enhance the role of the River Irwell as an important
ecological corridor. Tree planting is encouraged as part of landscaping
schemes and public realm works, in order to support the area’s
biodiversity, offset carbon dioxide emissions and enhance the appearance
of the area.
 These measures will ensure that the redevelopment of The Exchange,
Greengate accords with Policy ST1 of the Replacement UDP, which
promotes the creation and maintenance of sustainable urban
neighbourhoods.
6.5
Business Relocations
POLICY EG 6
Sites that are currently occupied by or were previously used for
employment uses must provide appropriate replacement floorspace.
 The Greengate area still has a number of well established businesses
which provide an important source of local employment. Some of these
companies may be able to remain in the area because they will contribute
to the commercial activity proposed – for example, small creative
businesses. Others because of their size or nature of their business will
need to consider relocation.

The City Council is concerned to ensure that:
 existing businesses are involved in discussions on relocation
opportunities at an early stage in the development of specific
proposals
 if businesses do need to move out of the area then replacement
floorspace will provide new (if not directly comparable) job
opportunities.
B
AREA SPECIFIC GUIDANCE
6.6
Sites for Development and Public Realm
POLICY EG 7
The Exchange includes eight principal sites for development and for
the provision of high quality public realm. These are:
1.
2.
3.
4.
5.
6.
7.
8.

The former railway viaduct and adjoining land
Land at Queen Street/ Boond Street
Land at Dawson Street/ New Bridge Street
Land at Greengate
The former Colliery Street Baths
48-60 Chapel Street
Land at King Street/Queen Street (in various ownerships)
Proposed Public Realm at Chapel St/ Greengate/ Gravel Lane
Plan 10. 4 shows the boundaries of these eight sites.
 Together, these sites form the building blocks which are the basis for
the regeneration of Greengate. Each will be redeveloped in accordance
with the detailed planning considerations set out in this Guidance.
However, new development on one site will of course impact on adjoining
sites and the way in which new buildings and open space eventually relate
and complement each other will determine the successful creation of The
Exchange as a new urban quarter of the City.
6.7
Urban Form, Density and Massing
POLICY EG 8
The Exchange will take on the established urban form of Manchester
City Centre with its dense and compact city blocks and regular street
grid. The key principles of the proposed urban structure are set out
in the Design Framework (Plan 10.5).
 The generally narrow street widths in Greengate lend themselves to
predominantly six storey building heights rising to ten storeys adjoining
public open spaces and reducing to three/ four storeys around historic
buildings.
Taller buildings will be acceptable along the northern and eastern
boundary of Greengate, creating an identifiable and recognisable skyline
in the vicinity of Victoria Station with the tallest buildings adjoining the
Station and stepping down again towards the City Centre. Where taller
buildings are envisaged, they are anticipated to range in height from
twelve to thirty stories, generally positioned at the corners of urban blocks
and to the perimeter of the area to reduce overlooking and
overshadowing. The highest design quality is critical for all tall
buildings. – reference should be made to CABE guidance on the design
of tall buildings.
 An opportunity exists to introduce new forms of development on top of
the existing railway viaduct, ranging from four/ five storey buildings along
the southern edge to taller buildings at the northern end closest to Victoria
Station.
 There will be flexibility in considering the individual composition of
block massing – this will allow variation of height relative to aspect, street
width and proximity to large scale public spaces.
 It is envisaged that the key development sites identified will be
developed comprehensively without sub division. A combination of high
density and large sites could potentially lead to monolithic designs which
do not relate well to either existing buildings or adjoining new
development. As well as respecting the building heights set out above,
key considerations will also be the treatment of rooflines and a variety of
massing and other visual treatment to ensure that large developments
appear as a series of individual buildings.
 The street network defines the urban pattern of every great city. The
historic pattern of Greengate’s streets and spaces is still evident and this
is reflected in the Design Framework. New developments must not
compromise the street grid.
6.8
Building Layout and Appearance
POLICY EG 9
The City Centre’s urban design heritage is characterised by the
Victorian and Edwardian approach of using buildings to dominate
corners and command the street.
New development should
recognise this characteristic by respecting existing building lines –
this will normally mean building to the back of pavement and
reinforcing corner plots. All buildings must have entrances and
access points onto the street or public open space.
 The most dominant architectural style in this part of the city is
Victorian. Although varying significantly in form, key elements include:

a ‘tripartite’ horizontal subdivision of elevations with an over large
and heavily modelled ground floor, a more regular middle section
and a ‘lighter’ top floor which gives a varied roof line.

an emphasis on the corners often terminated by architectural
features such as domes and cupolas

vertically proportioned windows used singularly or in groups

a variety of building materials including red-orange brick,
sandstone, terracotta and faience. Richness and interest was
created by using polished stone elements alongside matt materials.

deeply recessed windows and other openings , often emphasised
by hood mouldings and other surrounds

the use of architectural features such as chimneys which projected
above the main elevation to create vertical rhythms.
There is no suggestion that new buildings should copy those of the past.
The design of new buildings should seek to provide high quality
contemporary solutions that respond to Greengate’s historic legacy
without resorting to pastiche, interpret the materials and built form found
within the City Centre and seek to establish visual qualities to make
buildings and streets as successful as possible.
 The design of active frontages will be important – for example, the
opportunity to ‘spill out’ onto the street and the considered use of security
devices which allow shop fronts to remain of interest after normal opening
hours (solid roller sheets will not be permitted).
POLICY EG 10
The introduction of creative architectural lighting schemes is
encouraged.
 These will provide visual, environmental and security benefits,
enhancing the attractiveness of buildings and the streetscene.
POLICY EG 11
The potential for urban art should be considered at an early stage in
all appropriate development and public realm schemes.
 High quality artwork which is well designed, fun and exciting will help
give a distinctive identity to The Exchange.
6.9
Key Views
POLICY EG 12
New development will need to respect the angles, alignments and
changes of level of existing and proposed streets to maintain and
create new vistas.
 An important part of establishing The Exchange as a new City quarter
will be helping people to orientate themselves from outside and within the
area. As well as the physical links, visual connections will also be
important (see 10.6) Views of special significance include:

into Greengate from Victoria Street

from the railway viaduct to the Manchester skyline

to and from the riverside

long vistas terminated by key buildings such as Manchester
Cathedral and the Grade 2* listed Collier Street Baths.
 The provision of ‘gateway’ buildings will help create a sense of place,
mark entrances into The Exchange and improve general orientation within
the wider area.
6.10
Sustainable Design
POLICY EG 13
New development should take into consideration the principles of
sustainable construction and energy efficiency.

Developments should include :
o the use and disposal of water in a responsible and efficient
manner
o the use of solar panels and photovoltaic cells as a source of
renewable energy
o natural rather then mechanical ventilation
o energy efficient/ environmentally friendly appliances.

Other mechanisms to be considered include :
o the installation of a combined heat and power electricity supply
o the use of the River Irwell as a low energy cooling source
o the use of vertical axis wind turbines for high level rooftops

The construction of buildings should use building materials and
construction techniques that minimise any potential detrimental
environmental impacts. All developments shall incorporate recycling
facilities.
 In order to make high density living more attractive, levels of noise
insulation above those required under building regulations could be
introduced. Developments are encouraged to be designed using the
principles of ‘Buildings for Life’ and BREAAM and achieve a rating of very
good.
6.11 Secured Design
POLICY EG 14
New development should take into consideration the principles of
‘Secured by Design’
 Safety and security in the City Centre are complex but vital elements in
creating an attractive place to live, work and visit. Architecture and design
will make a significant contribution to everyone’s sense of security in The
Exchange. In particular:
 building designs should include crime prevention measures
 lively, lived in streets and public spaces that are easy to overlook
and oversee should be created
 there should be a variety of routes through an area which are
clearly signed and well lit at night.
 Applicants must demonstrate how the principles of ‘secured by design’
have been incorporated within their schemes. Reference should be made
to Salford City Council’s Supplementary Planning Document on Design
and Crime.
6.12
Accessibility and Circulation
POLICY EG 15
The Exchange will adopt the street pattern that is set out in the
Design Framework (Plan 10.5)
 The Design Framework respects the existing street pattern both of the
historic Greengate triangle and also the neighbouring Victorian street grid.
In this way, the historic thread between old and new will remain,
maintaining continuity in terms of place names and established routes and
connections.
 Maintaining the general pattern of the existing streets also provides for
a dense series of urban streets and squares which attempts to unite the
scale of the typical Manchester City Centre block with the grain of the
historic core of Salford.
 A grid of pedestrian and cycle friendly streets is envisaged. This grid
will offer numerous alternatives for movement through Greengate leading
to and from important destinations within and outside the area. This
permeability should not be compromised by new developments – indeed
opportunities may arise where routes can be reinstated.
 One specific route within The Exchange is the riverside walkway – this
pedestrian and cycle route will not only regularly be linked back into the
area’s street grid but it will also be part of the larger River Irwell Walkway
eventually extending from the University of Salford to the Quays. It should
be a minimum of 4 metres wide and developers will be expected to follow
a common palette of materials and street furniture to unify the walkway
design. Further information on this should be sought from the City
Council.
6.13
Car Parking and Servicing
POLICY EG 16
Car parking provision should not exceed the maximum standards set
out in Appendix 3 of the Replacement UDP.
 Within mixed use schemes, developers will also be required to
investigate the provision of shared parking facilities that further reduce the
need for spaces. To achieve well designed and active street frontages,
ground floor car parking is not acceptable.
 Servicing to non residential uses should be provided off street within
the development, for example through shared surface areas.
6.14
Primary Public Realm
POLICY EG 17
The Exchange primary public realm proposals are conceived as an
integrated sequence of spaces leading from the river to the heart of
the Greengate site (Plan 10.4)
 One of the key visions for The Exchange is to create an outstanding
series of new public spaces which will not only connect to and
complement those within the Millennium Quarter but will also provide a
unique sense of character for the historic centre of Salford. Public realm
on this scale will provide Salford with a new City Square, which when
taken together with the Millennium Quarter will mark out the medieval
centres of both Cities as a grand piece of public space.

The sequence has three main elements:
(i) The Urban Cove
An extensive street level water space with giant water sculptures, and
urban waterfall and an iconic new pedestrian bridge from Victoria
Street. The Cove symbolically raises the River Irwell to Chapel Street
level while the bridge provides a generous crossing connecting both
cities. Together they will provide a stunning gateway into The
Exchange.
(ii) The Greengate Link
A paved square and pedestrian route lined with water sculptures and
an art based light installation beneath the existing railway viaduct. This
space will have the activity of a retail street with views back to the
skyline of Manchester and through to Greengate Square and beyond.
(iii) Greengate Square
Greengate Square will form a new green heart to The Exchange. A
central lawn will be surrounded by densely planted tress and granite
terraces. The Square will also include the re-establishment of the
ancient Market Place where new monuments will mark the sites of the
original Exchange and Salford Cross.

Key principles which will apply to the design of The Exchange’s
primary public realm will be:
(i) The Urban Cove

provision of a large street level water feature to raise the river
symbolically and create a stunning gateway into The Exchange

terraces should provide seating areas and a forecourt to the
Cathedral Approach vaults

high quality and durable materials should be used

The inclusion of sculptures or other forms of urban art should be
provided to enliven the space and draw people to the river and
across

where the Cove meets the river bank there should be an
appropriate treatment to hide or improve the existing unsightly
concrete retaining bank

a new pedestrian bridge should be provided on the direct axis
between Victoria Street and the link through the railway viaduct to
the heart of Greengate. This bridge should have an iconic impact
both day and night and should provide an exciting visual
experience as it passes over the river and through the water
sculptures in the cove.
(ii) The Greengate Link

the connection along Greengate itself between the Cove and
Greengate Square must provide a pedestrian friendly environment
both day and night with active retail and commercial street
frontages.

agreement has been reached with Network Rail to remove the
section of existing viaduct that is not in operational use. Together
with the removal of other buildings at the Chapel Street/ Greengate
junction, this will create a large space adjoining Chapel Street
which narrows as it reaches the operational viaduct to the north.
Views to the Cove and Cathedral should be exploited.

there should be a strong physical and visual relationship between
the link and the Cove, for instance, through the use of similar high
quality materials and art features. The crossing over Chapel Street
will require particular attention.

Greengate itself will continue to carry one way traffic in a northerly
direction. Shared surface road and pavement treatment should be
provided.

as well as being a street level link, there should also be clear
pedestrian links to the proposed upper levels of development on
the viaduct

good lighting will be particularly important to address the unsightly
and dark areas beneath the remaining viaduct – for instance,
pavement lighting and light installations on the bridge and viaduct
walls.
(iii) Greengate Square

The main pedestrian flow through the Greengate Link should
continue naturally into the new Greengate Square. The general
design approach to paving, floorscape and road surfaces should
also be continued

Greengate Square provides the opportunity to form a new green
‘heart’ to The Exchange – a space that will complement the quality
of Cathedral Gardens and Exchange Square

the Square should have a central grassed area surrounded by
trees. Changes in level across the site will require the imaginative
use of terraces to provide disabled access and seating areas

the south of the Square is fronted by the railway viaduct. It is
envisaged that in the future, the arches will become retail or café/
bar space. High quality paving and terracing with tree planting
should front these arches to provide a pleasant outdoor
environment. Servicing of the arches will either be from the Square
or from within the vaults

there is an opportunity to provide a small kiosk or pavilion in this
area – maybe a café/ bar or information point

to the north of the Square, a series of planted terraces should
provide a softer edge to the central gardens. Semi mature trees
should be planted to give immediate scale and character to the
space

The central gardens should have formal and informal planting and
trees to provide structure and year round interest

6.15
To the northeast of Greengate Square is the site of the original
medieval Exchange, Market Place and Salford Cross. There is an
opportunity to recreate and interpret these important historic
structures to give a unique reminder of the City’s medieval origins.
Consideration should be given to representations of the structures
within the Market Place together with the interpretation of any
archaeological features revealed.
Surrounding development
proposals should provide active frontages to the Market Place and
maybe an open market could return to its historic location.
Secondary Public Realm and Landscaping
POLICY EG 18
A second tier of smaller public places together with a unified
landscaping strategy is to be provided throughout the area.
 The secondary public realm will include a ‘pocket park’ on King Street
and a new public square as part of development on the railway viaduct
(see 10.5). It is also likely that other key developments will also include
some publicly accessible open space. It is anticipated that these
secondary areas of public realm will be provided either directly or as part
of development schemes or indirectly through planning obligation
contributions.
 The Exchange will become a unique and easily identifiable part of the
City Centre. An important element in achieving this identity will be
common landscape treatments across the area. These will ensure that
streets and spaces are designed in a unified manner through the use of
specific materials, trees, planting and detailing. The key principles of the
landscaping strategy are set out in 10.8.
6.16
Conservation Area and Listed Building Issues
POLICY EG 19
The approach to new development in Conservation Areas and to the
conversion and refurbishment of historic buildings within and
around the Greengate area must be one of respect and preservation.
(Plan 10.9)
 The Flat Iron Conservation Area marks the entry to the south east
corner of Greengate and the preservation and enhancement of this area is
of utmost importance. The Cathedral Conservation Area also includes
part of the Greengate riverbank as the setting for Manchester Cathedral.
 The listed buildings and structures and buildings of local historic
interest include:

the former Collier Baths (Grade 2* )

the former Police Station, 62 Chapel Street (Grade 2)

the Eagle Inn, Collier Street (Grade 2)

Victoria Bridge (Grade 2)

Railway viaduct façade at Greensgate/ Chapel Street (Grade 2)

52 – 60 Chapel Street (Local Interest Grade C)
 Adjoining the area are other permanent listed buildings including
Manchester Cathedral, Chetham School of Music, Sacred Trinity Church
and some fine buildings on the Blackfriars Road frontage.
 The City Council is proposing to prepare conservation area appraisals
and management plans for Flat Iron and (jointly with Manchester) the
Cathedral Conservation Areas. When produced, these will be important
reference documents for future development and environmental
enhancement schemes.
 Refurbishment schemes will need to respect the historic and
architectural importance of listed buildings. Proposals for new uses for
listed buildings must ensure their long term retention.
 All new development will be sympathetic to the conservation areas
and listed buildings through:

designs which understand and respect their architectural and
historic setting, which are of an appropriate scale and massing and
which use appropriate details and materials

the retention of important views

the use of landscaping and planting of trees which enhance
amenity and environmental quality
6.17
Archaeology
POLICY EG 20
In order to improve the understanding of the evolution and character
of historic Salford, no development or demolition will take place in
the Greengate area until a developer has secured the implementation
of a programme of archaeological work.
 The Exchange area is the historic medieval core of the City of Salford,
defined by an irregular triangle of three principal streets - Back Salford
(later Greengate), Sergeant Street (later Chapel Street) and Gravel Lane.
Salford was granted Borough status through a charter in 1230 including
the right to hold a market. Remarkably, the rectangular shaped market
place still survives in the modern street pattern where Greengate meets
Gravel Lane. Once this area contained a court house, market cross,
stocks and conduit (pump). The court house was the administrative
centre of the medieval Salford Hundred as well as the Borough.
 There has been very little archaeological investigation of medieval
Salford. However there is certain to be a wealth of remains within the
area relating not only to the medieval period but also to Salford’s rich
industrial legacy when Greengate was covered by workers housing and a
variety of small scale industrial premises. An archaeological desk based
assessment to formally identify potential remains of archaeological interest
and their significance is currently being undertaken by the Greater
Manchester Archaeological Unit.

This policy is to ensure there is a record of remains of archaeological
interest in accordance with policy CH7 of the Replacement UDP.
Part Seven: Implementation and Monitoring
7.1
The development control process will be the primary way in which this
Planning Guidance is implemented, specifically in terms of informing
decisions on planning applications for new development. The Guidance
does not have the status of the Development Plan (for the purposes of
Section 38 of the Planning and Compulsory Purchase Act 2004)
7.2
Given its role in the development control process, the Planning Guidance
should also be used by developers to inform the design of their
development schemes prior to the submission of planning applications.
This will help to reduce costs for developers by minimising the need for
scheme amendments and will also help to improve design quality by
ensuring that developments respond to the principles set out.
7.3
In addition to its role as Local Planning Authority and coordinator of
regeneration activity, the City Council will also assist in the delivery of this
Guidance through its other activities, for example when designing and
implementing its own improvement works such as highway and lighting
schemes. Likewise it is expected that other organisations such as
statutory undertakers will have regard to these design principles.
7.4
The Guidance provides a framework for all landowners to make decisions
regarding their sites in Greengate.
7.5
The effectiveness of the Guidance will be regularly assessed by the City
Council. It is anticipated that this will be both a qualitative assessment as
well as using quantitative indicators such as new commercial floorspace
and the numbers, type and size of new residential units. This assessment
will help to identify whether there is any need for the Guidance to be
reviewed.
Part Eight: Planning Obligations
8.1
All developments that are brought forward within The Exchange,
Greengate will be required to contribute proportionately to the cost of
public realm, infrastructure, transport and environmental improvements.
This is necessary to deliver the exceptional design quality and unique
environment required in The Exchange.
8.2
The City Council is currently producing a Planning Obligations
Supplementary Planning Document. This will provide further guidance on
the levels of contribution required from new development in The
Exchange. Copies are available from:
Spatial Planning
Salford City Council
Salford Civic Centre
Chorley Road
Swinton
M27 5BW
Part Nine:
9.1
All planning applications for new development within The Exchange,
Greengate should be accompanied by the following:







9.2
Planning Applications
Planning Application Forms (five copies) and appropriate fee.
Relevant Plans and Elevations: 1:500 or 1:200 scale including site
edged red, proposed layout plans and proposed elevations. All
applications should also be supported by 3D visualisations and
models. A masterplan will be required for outline applications,
comprising indicative details supported by a Design Statement.
Planning Statement – justifying the development in national,
regional and local planning policy terms including the requirements
of this Planning Guidance.
Design Statement – demonstrating that the proposals comply with
the requirements of this Planning Guidance.
Specifically the Design Statement should set out:
 The design principles of the scheme
 How the design relates to its site and neighbouring sites,
addressing particularly:
 scale, massing, orientation and materials;
 how the development relates to neighbouring public
space, building lines, highways and landscape features;
 how the scheme impacts on the character of the area,
views and vistas and street patterns;
 how the amenity of users and neighbouring
developments have been protected.
 Features which will ensure access for all as well as safe
circulation and movement in and around the site.
 Measures which help to design out crime including physical
security, surveillance, access and management.
Traffic Assessment and Green Travel Plan.
Environmental Impact Assessment (where appropriate and as
directed by the 1999 EIA Regulations)
Desk Top Ground Conditions Study
Pre application discussions with Salford City Council officers will form an
integral element of the planning and design process. The City Council
operates a Development Team approach in such discussions, bringing
together the relevant planning, highway, engineering and environmental
professionals. Officers from the Central Salford URC are also involved
where appropriate. Contact details are given in Appendix C.
9.3
Where relevant, full consultation with local businesses and residents
should also be undertaken prior to the submission of a planning
application in order to foster community involvement in the planning
process.
Part Ten:
Plans
10.1: The Exchange, Greengate: Site Boundary
10.2: The Central Salford Urban Regeneration Company Vision: Extract
10.3: Developments recently completed or on site
10.4: Sites for Development and Public Realm
10.5: Design Framework
10.6: Key Views
10.7: The Exchange Public Realm in the context of Manchester’s urban spaces
10.8: Landscape Strategy
10.9: Conservation and Listed Buildings
Appendix A:
(i)
Key Policies in the City of Salford Replacement UDP
2004 – 2016 supported by this Planning Guidance
Strategic Policies:













(ii)
Mixed Use Development:


(iii)
MX1 - Development in Mixed Use Areas
MX2 - Chapel Street Frontage
Design:










(iv)
ST1 - Sustainable Urban Neighbourhoods
ST2 - Housing Supply
ST3 - Employment Supply
ST4 - Key Tourism Areas
ST5 - Transport Networks
ST6 - Major Trip Generating Development
ST7 - Mixed Use Development
ST8 - Environmental Quality
ST11 - Location of New Development
ST12 - Development Density
ST14 - Global Environment
ST15 - Historic Environment
ST16 - Sustainable Waste Management
DES1 - Respecting Context
DES2 - Circulation and Movement
DES3 - Design of Public Space
DES4 - Relationship of Development to Public Space
DES5 - Tall Buildings
DES6 - Waterside Development
DES7 - Amenity of Users and Neighbours
DES9 - Landscaping
DES11 - Design and Crime
DES13 - Design Statements
Housing:



H1 - Provision of New Housing Development
H1A - Managing the Supply of Housing
H4 - Affordable Housing

(v)
H8 - Open Space Provision associated with New Housing
Development
Employment and the Economy:


(vi)
Retail and Leisure Development:

(vii)
EN11 EN13 EN17A
EN18 -
Derelict Underused and Neglected Land
Contaminated Land
- Resource Conservation
Environmental Improvements Corridors
The City’s Heritage:





(x)
A1 - Transport Assessments and Travel Plans
A2 - Cyclists, Pedestrians and the Disabled
A5 - Buses
A6 - Taxis
A8 - Impact of Development on the Highway Network
A10 - Provision of Car, Cycle and Motorcycle Parking in New
Developments
Environmental Protection and Improvement:




(ix)
S2B - Retail and Leisure Development outside Town Centres
and Neighbourhood Centres
Accessibility:






(viii)
E2A - Knowledge Capital
E6 - Tourism Development
CH4 - Development affecting the setting of a Listed Building
CH5 - Works within Conservation Areas
CH6 - Demolition of Buildings with Conservation Areas
CH7 - Archaeology and Ancient Monuments
CH10 - Local list of Buildings, Structures and Features of
Architectural, Archaeological or Historic Interest
Recreation:

(xi)
Development:

(xii)
R8 - Recreational Use of Waterways
DEV5 - Planning Conditions and Obligations
Waste:

W1 - Waste Management
Appendix B:
Consultation and Public Involvement
1.
The Exchange Greengate Development Framework

The consultation process included:
(i)
A series of workshops, presentations and discussions with key
stakeholder organisations at the early development and later draft stages
of the Framework. These have included Salford City Council, Manchester
City Council, North West Development Agency, English Partnerships,
Network Rail, GMPTE, the Central Salford Shadow Urban Regeneration
Company Board, Greater Manchester Archaeological Unit and various
private sector developer partners.
(ii)
The establishment of a Steering Group of key partners to consider the
evolution of the Development Framework and specifically, its design
aspirations, commercial reality and funding requirements.
(iii)
A consultation event for local businesses and landowners within
Greengate to consider the draft Framework in July 2004. This was
attended by representatives of around 25 companies and land owners and
comments on the ideas helped to inform the preparation of the final
document.
(iv)
The Framework was presented to CABE’s Design Review Committee in
December 2004. The Committee’s views were extremely positive –
specific comments were:

The Development Framework (that is emerging) is exemplary and
will prove to be an excellent example of how good design adds
value. The Design Team has successfully managed to work with
the past to set a sustainable integrated and realistic pattern for the
future.

The success of the Framework lies in the depth of the analysis, the
quality of the approach, the strength of vision and the convincing
way in which these have informed the proposal.

Support for the strategy of phasing the two key public spaces
(Greengate Square and Urban Cove) and the improvement of the
linking route through the viaduct at the beginning of the
implementation process.
The Committee believe these
infrastructure elements are non negotiable.

2.
General support for the massing and uses proposed for the area
and that environmental issues have been a key part of the design
thinking.
Planning Guidance

The draft Planning Guidance for The Exchange, Greengate is subject
to a six week public consultation from 14 July to 24 August 2006.

All comments received by 24 August 2006 will be carefully considered
by the City Council and the Planning Guidance amended where
appropriate. A summary of the representations received will be
published by the City Council.
Appendix C: Contact Details
Developers are actively encouraged to enter into pre-application discussions
about their proposals. In Salford, the City Council and the Urban Vision
Partnership (acting as consultant to the City Council) deal with planning and
development matters.
Contact Salford City Council for advice on:
Planning Policy issues
Conservation and Listed Building issues
Urban design issues
Regeneration issues (including the work of the Central Salford Urban
Regeneration Company)
Contact the Urban Vision Partnership for advice on:
Development Control matters, including planning applications and preapplication discussions
Building Control issues
Highway and Traffic issues
Land and Property matters
Drainage issues
Trees and Landscape issues
Contact details are:
Salford City Council
Civic Centre
Chorley Road
Swinton
Salford
M27 5DA
Tel: 0161 794 4711
Urban Vision Partnership Ltd
Emerson House
Albert Road
Eccles
Salford
M30 0TE
Tel: 0161 779 4986
All Salford City Council publications are available on the Council’s website
(www.salford.gov.uk). To assist people with particular needs, many of the
documents can be made available in large print, Braille, audiotapes and in a
number of alternative languages on request.