Adoption Report May09
Part 1
REPORT OF THE STRATEGIC DIRECTOR FOR SUSTAINABLE
REGENERATION
TO THE LEAD MEMBER FOR PLANNING
FOR BRIEFING ON 5th May 2009
FOR DECISION ON 19th May 2009
TITLE: SALFORD CENTRAL DEVELOPMENT FRAMEWORK
RECOMMENDATIONS:
That Lead Member for Planning is recommended to:
1. Note changes proposed to the draft Salford Central Development
Framework since February 2009 in paragraphs 1.6-1.18.
2. Adopt the resulting revised Salford Central Development Framework
incorporating these changes as planning policy which sets out the principles
for comprehensive development in the Central Salford area.
EXECUTIVE SUMMARY:
On 3rd February this year Lead Member for Planning approved changes to
the draft Development Framework for Salford Central in response to
representations made in the consultation process carried out in the Summer
of 2008. This report summarises further additions/amendments to the
Framework (notably the proposed option for the Islington Estate) and
recommends that the Framework is adopted by the Council to guide
development in the Salford Central Area.
BACKGROUND DOCUMENTS:
Salford City Council: Salford Central Planning Guidance (adopted March
2008).
Draft Salford Central Development Framework May 2008.
Planning appeal ref APP/U4230/A/08/2089202 - The Bell Tower, Chapel
Street, Salford.
Islington Estate Consultation responses and report.
Bus Interchange Consultation documents, responses and report.
ASSESSMENT OF RISK: Medium
At present there appear to be two main risks:
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Adoption Report May09
1. The Development Framework is not included in the Local Development
Framework and forms informal planning policy. Planning Policy
Statement 12 Local Spatial Planning strongly advises against the
production of guidance of this type other than Supplementary Planning
Documents where it is intended to be used in decision making or the
coordination of development. However, as shown below the
Framework develops policies in the North West of England Plan
(Regional Spatial Strategy to 2021) and the adopted UDP and has
been subject to public consultation. Furthermore, a recent appeal
decision gave weight to the unadopted draft Framework which will be
increased through its adoption.
2. This is an ambitious long term project with delivery likely to be over the
next 15-20 years. This is a long enough timescale for the UK economy
to weather the current difficulties and for demand for development to
rise again. The market demand studies commissioned by English
Cities Fund and the Central Salford Urban Regeneration Company
support this view. Regardless of the current state of the UK economy,
the Framework needs to be adopted now to underpin the ambitions for
the area in Unitary Development Plan policies and the already
published planning guidance, support the forthcoming outline planning
application for the development and any possible Compulsory
Purchase Order.
SOURCE OF FUNDING:
The preparation of the Development Framework has been funded by the
Central Salford Urban Regeneration Company.
LEGAL IMPLICATIONS:
Contact Officer and Extension No:Richard Lester ext. 2129.
Date Consulted:21st April 2009.
Comments: Although a non-statutory document, the Salford Central
Development Framework should assist developers and ensure a consistent
approach by the local planning authority to proposed schemes. As such its
implications should be entirely beneficial.
FINANCIAL IMPLICATIONS:
Contact Officer and Extension No: Stephen Bayley Ext. 2584.
Date Consulted: 14th April, 2009.
Comments: The preparation of the Framework has been funded from budgets
within the Central Salford Urban Regeneration Company.
COMMUNICATION IMPLICATIONS:
The Development Framework has been prepared as an inclusive process. An
initial workshop session and one to one meetings with key stakeholders was
held in February 2008 to establish the principles that would inform the
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Adoption Report May09
development of the Framework. The public were consulted on the draft
Development Framework over a three week period from 13 May to 3 June
2008 with a number of roadshow events and presentations taking place within
that period. Around 350 individuals attended events. There was general
support for the plans and the need to create a separate identity for the area. A
separate consultation was carried out in 2009 regarding Greater Manchester
Passenger Transport Executive's potential off-street bus interchange and
identified the eastern part of Gore Street. A Chapel Street Regeneration
Forum has been established to maintain communication between residents
and businesses in the area and the development partnership. The Group
meets quarterly and is chaired by Andy Salmon Vicar of St. Phillips and Trinity
Churches.
VALUE FOR MONEY IMPLICATIONS:
A budget of £50,000 from the Central Salford Urban Regeneration Company
was available for the preparation of the Development Framework and
associated studies. Implementation and delivery of individual projects will be
led by the City Council's and Central Salford Urban Regeneration Company's
development partner, English Cities Fund together with other landowners and
developers. Although further public investment is required to assemble sites
and carry out works to the public realm, it is expected that this investment will
generate considerably greater private investment into the area (which will also
contribute to some public realm works through legal agreements).
CLIENT IMPLICATIONS:
Salford City Council and the Central Salford Urban Regeneration Company
are the commissioning partners for the Framework.
PROPERTY:
Salford City Council in December 2006 entered into a Development
Agreement with English Cities Fund and Central Salford Urban Regeneration
Company to secure the regeneration of the Salford Central area. The City
Council and English Cities Fund already have a considerable land holding in
the area covered by the agreement and negotiation is continuing to acquire
further sites.
In September 2008 the Lead Member for Planning approved, in principle, the
use of the Council's compulsory purchase powers under Section 226 of the
Town and Country Planning Act 1990, to assemble the land required for the
comprehensive redevelopment of the area covered by the agreement where
the Council is satisfied that all reasonable endeavours have been made to
acquire the land by negotiation.
HUMAN RESOURCES:
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Staff from Sustainable Regeneration Directorate and Urban Vision have been
part of the Development Framework Project Team and will continue to be
involved with its implementation.
CONTACT OFFICER:
David Greenfield Extension No:3264
WARD(S) TO WHICH REPORT RELATE(S):
Ordsall
Irwell Riverside
KEY COUNCIL POLICIES:
Salford City Council Development Plan. comprising;
 North West of England Plan (Regional Spatial Strategy to 2021)
 City of Salford Unitary Development Plan
Salford City Council: Salford Central Planning Guidance (adopted March
2008).
Central Salford Urban Regeneration Company: Vision and Regeneration
Framework (2005).
Manchester City Council, Salford City Council and Trafford Metropolitan
Borough Council: Irwell City Park Planning Guidance (adopted March 2008).
Central Salford Public Realm Handbook (adopted February 2009).
DETAILS:
1.0
Background
1.1
Salford City Council and the Central Salford Urban Regeneration Company
have a shared vision to transform Salford Central into a distinctive new part
of the City Centre through comprehensive regeneration. The Development
Framework will form a material consideration in the determination of
planning applications within Salford Central and forms a part of a suite of
planning policies derived from the Regional Spatial Strategy and the City of
Salford Unitary Development Plan.
1.2
Regional Spatial Strategy policies for Manchester City Region (MCR1MCR2) requires that regeneration plans and strategies ensure that the
Regional Centre (including Central Salford) continues to develop as the
primary economic driver for the City Region. The City of Salford Unitary
Development Plan policy MX1 required Central Salford (Chapel Street West
and East) be developed as a vibrant mixed use area with a broad range of
uses and activities.
1.3
Salford Central Planning Guidance was adopted by the City Council in
March 2008 to explain in more detail how the policies in the Unitary
Development Plan would be applied. It identified a need to assemble sites
and to enter into a partnership agreement with a significant private
developer (see in particular paragraphs 7.5 and 7.10). It also proposed a
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Adoption Report May09
more detailed Development Framework which would show how the
guidance could be delivered and set out a spatial configuration for new
development in the area. The planning guidance requires developers to
demonstrate how their proposals will contribute positively to the
comprehensive regeneration of Salford Central as a whole (Policy SC1).
Development proposals must also show by reference to the Framework how
they would form part of a co-ordinated development across the area (Policy
SC2).
1.4
The Planning Guidance was identified as carrying considerable weight at a
recent appeal as it had only recently been adopted and added detail to the
principles embedded in the UDP (Appeal Ref: APP/U4230/A/08/2089202
The Bell Tower, Chapel Street, Salford). The inspector in the case also
noted that the plans set out in the draft Framework should not be ignored
and attached some weight to it, notwithstanding its draft status. Adoption of
the Development Framework by the Council will enhance its legitimacy as a
planning policy tool.
1.5
Consultants Urban Initiatives were commissioned in December 2007 to
prepare a Development Framework, and a Project Team of officers and the
developer partners was established to manage the project. An initial draft
was subject to widespread public consultation in the Summer of 2008. The
amendments proposed to the Development Framework resulting from this
consultation were reported to Lead Member for Planning on 3rd February
2009.
1.6
Since February a number of outstanding issues significant to the
Development Framework have been resolved or progressed. These will be
added to (or used to amend) the draft of the Framework (dated December
2008) to form the Adopted document.
1.7
Islington Neighbourhood Planning Process. Salix Homes has been working
with residents, the City Council, and the URC to consider the future
improvement and remodelling of the Islington Estate and how it can be
integrated into the wider development area. The consultants GVA Grimley
and Planit produced five options for the estate and a successful resident
consultation on these took place in February 2009. The recommended
option includes partial demolition of low rise properties and infilling to
provide additional new houses and apartments (including homes for sale)
and better links to the surrounding area. The chosen option will be
integrated into the structure of the development proposed in the Framework.
A full report on the consultation will be presented to Housing Lead Member
on 19th May 2009.
1.8
A Project Initiation Document has been submitted to Homes and Community
Agency for inclusion of the estate in the Private Finance Initiative Round Six.
This is aimed at delivering the following capital works:
 Demolition of some low rise properties within the Islington Estate
(inclusive of owner occupied and leasehold properties).
 New build properties for social rent to remain within council
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ownership.
 Refurbishment of external fabric and communal services to two multistorey blocks.
 Estate remodelling works including environmental enhancements to
reduce opportunities for crime and improve perception of the area.
 Asbestos Removal.
 Provision of housing for market sale.
A response is expected from the Homes and Community Agency in
April/May.
1.9
Salford Central Station
In January 2008 the Greater Manchester Passenger Transport Executive,
Network Rail, Salford City Council and the Central Salford Urban
Regeneration Company commissioned consultants led by Austin Smith Lord
to review the vision, design and phasing of a programme to improve Salford
Central Station and particularly address the lack of capacity and its
response to envisaged development in the area. The study published in
January 2009 envisaging a much enlarged station with a new western
entrance and the use of the arches and arcading beneath the station for
retail, workshops cafes etc.
1.10 Bus Interchange
The Greater Manchester Passenger Transport Executive is considering a
potential off-street bus interchange and has identified the eastern part of
Gore Street (opposite the northern entrance of Salford Central Station) as a
suitable location. As this was an amendment to the draft, a separate
consultation of stakeholders was carried out in March and April 2009. This
resulted in nineteen response. Concerns were mainly expressed about the
possible loss of existing buildings on Chapel Street and New Bailey Street if
the bus interchange was developed . However the possible location has
been included in the adopted documents and Salford city Council and the
Urban Regeneration Company will continue to examine the potential for this
use on the Gore street site.
1.11 Irwell City Park
North West Regional Development Agency and partner approval for £1.1m
funding was granted in November 2008 to complete the “preimplementation” phase of Irwell City Park. After a series of formal tender
processes, consultant teams were appointed in January 2009; a Design
Team (Broadway Malyan, Form Associates and Giffords), Project Managers
and Quantity Surveyors (Davis Langdon), and Construction Design and
Management Regulations Coordinator (Turner and Townsend).
1.12 Pre-implementation works focus on the detailed planning and technical
assessments leading to the securing of planning permissions by the end of
April 2010 for the following:
 The creation of a high quality, continuously accessible, Disability
Discrimination Act compliant, pedestrian and cycle route from
Mediacity:UK to the Regional Centre that will contribute significantly
to the Regional Centre Transport Strategy;
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
The construction of a number of new iconic pedestrian bridges that
will enhance and increase transport and economic connectivity and
accessibility to support future economic growth and,
A new premier public realm that will reinforce and underpin the Regional
Centre’s economic and social resurgence, and strengthen its economic
vitality, environmental quality and ability to attract substantial investment.
1.13 A strategic review of the project is nearing completion in order to clearly
define the scope of the project, and designs are progressing for a number of
key elements. The review has included a series of meetings and workshops
involving all key partners and stakeholders, to ensure buy-in and ongoing
commitment. To facilitate detailed designs, a series of surveys are
underway. A Waterways Strategy is being prepared to consider how best
the river/ship canal can be used for transport, leisure and recreation, and to
improve water quality. A Green Infrastructure Plan is also being prepared to
clarify the potential environmental, economic and health benefits.
1.14 Detailed discussions will also continue between the Irwell City Park team
and English Cities Fund to realise a complementary relationship between
the two projects.
1.15 Islington Park
The consultation draft and final draft proposed increasing the size of
Islington Park and extending it to occupy a long frontage and an entrance
onto Chapel Street. Although a frontage on Chapel Street will be retained in
the adopted version , the requirement to retain the building line at this point
has resulted in a revised plan reducing the length of frontage.
1.16 River Irwell Quays
The draft included a pedestrian bridge across the Irwell at this point into
Manchester. This has been omitted from the adopted Framework.
1.17 Marketing Studies
The final Framework will make reference to a range of recent marketing
studies undertaken in Salford Central which support the proposed mix of
residential, commercial, leisure, hotel, retail and creative business uses.
1.18 Text and Plan Changes
The final Framework also incorporates a number of minor text and plan
changes to reflect the above issues.
2.0
Conclusion
2.1
The adopted Development Framework will incorporate the above changes.
2.2
The Development Framework sets clear guidance for comprehensive
development of Salford Central over the next 15-20 years. It is flexible to
cope with inevitable changes which will occur in that period but will provide
enough certainty to encourage a consistent high standard of development
and regeneration.
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2.3
Following adoption of the Framework, English Cities Fund will be submitting
an outline planning application for development within the majority of the
Development Agreement area. This will lay the basis for detailed
development proposals and site assembly.
Paul Walker
Strategic Director for Sustainable Regeneration
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