Part 1
ITEM NO.
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REPORT OF THE STRATEGIC DIRECTOR FOR SUSTAINABLE REGENERATION
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TO THE LEAD MEMBER FOR PLANNING ON 7 SEPTEMBER 2010
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TITLE: PATRICROFT BRIDGE MASTERPLAN: REVIEW OF PROGRESS
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RECOMMENDATIONS:
That Lead Member for Planning:
1. Receive the submitted Patricroft Bridge Masterplan.
2. Support the principles set out in the Masterplan, whilst acknowledging the
impediments to early implementation as explained in the report.
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EXECUTIVE SUMMARY:
In light of redevelopment opportunities afforded by the desire of a key local employer
to relocate within the city, approval was granted to commission a masterplan for the
Patricroft Bridge area in Eccles. The preferred option, based on consultation with
landowners, businesses, stakeholders and residents, proposed residential
redevelopment with approximately 350 dwellings on Cawdor Street. However, in light
of changed economic circumstances, the preferred option does not fit the revised
plans of the key business in the area, which now plans to stay and invest in its site.
Options were considered to realign the masterplan with these revised aspirations but
were discounted for viability and value for money reasons. Therefore it is considered
that the best way forward is to receive the Masterplan as a guide to medium to long
term redevelopment of the area.
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BACKGROUND DOCUMENTS:
Salford Employment Land Review Final Report, November 2008 (published and
available at http://www.salford.gov.uk/planning-employmentlandreview.htm)
Patricroft Bridge Masterplanning Report, May 2010 (available for public inspection)
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KEY DECISION:
NO
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DETAILS:
1.
Background
1.1
The Patricroft Bridge area in Eccles has been identified as in need of
regeneration for the last 20 years. Initially efforts to regenerate the area
focussed on Liverpool Road. However, sites large enough for redevelopment
to stimulate wider regeneration could not be found along Liverpool Road.
Approximately 10 years ago, officers recognised the potential of the
Bridgewater Canal rather than Liverpool Road as a catalyst for regeneration
through redevelopment for housing at the canal’s edge. This had the potential
for more widespread regeneration on Liverpool Road, for example, through
the redevelopment of Bridgewater Mill for residential use. However, due to a
number of factors, including the complex mix of industrial and residential uses
and ownerships in the area, previous plans to regenerate the area have failed
or not been pursued.
1.2
Approximately four years ago, through agents, two significant landowners in
the area - Americhem and Barton Industrial Estate - jointly approached the
council with a proposal to redevelop their canal-side sites for housing. This
involved Americhem – an employer with a local workforce of approximately 50
people – relocating to another site in the area in order to expand its operation.
Whilst officers were generally supportive of the desire to relocate and expand
the business within the city, the applicants were unable to demonstrate that
they could satisfy the policy tests set out by UDP Policy E5: “Development
Within Established Employment Areas” required for redevelopment of the site
for non-employment use, and never submitted a planning application.
1.3
The Council’s Employment Land Review 2007-2026 (ELR) identifies three
employment sites within the Patricroft Bridge area: Legh Street, Vine Street
and Cawdor Street. The ELR categorises Legh Street and Vine Street
employment sites as swing sites, meaning they ‘will perform either poorly or
very poorly in the future market, and future change of use may be considered
appropriate’. Cawdor Street – where Americhem and Barton Industrial Estate
are located – is identified as a management site defined in the review as
‘average or above average quality sites that make an important contribution to
the portfolio of employment opportunities in Salford, and will continue to do so
in the future’1. The ELR recommends a strategy for reviewing swing sites to
ascertain which should be released which includes an analysis of the
businesses occupying each location and the regeneration priorities of the
surrounding area2.
1.4
The Liverpool Road Corridor Strategy and supporting baseline investigations
have identified the Patricroft Bridge area as a key priority for regeneration
within the city. Due to this recognised need for regeneration, known interest of
landowners in the area to redevelop their sites for housing and the
recommendations of the ELR, it was agreed that the future of the area should
1
2
Salford Employment Land Review Final Report November 2008, page xii
Salford Employment Land Review Final Report November 2008, page 112
be examined in greater detail through the preparation of a masterplan (see
annex 1 for masterplan boundary). Originally, Lead Members for Planning and
Housing and the Leader supported the submission of the Patricroft Bridge site
as part of the Europan Design Competition. However, due to the economic
downturn, the competition did not go ahead. Instead, the £55,000 required to
fund the masterplan was met from Housing Growth Point (£33,000) and
Salford West (£22,000). It was envisaged that the resulting Masterplan could
be adopted as a regeneration strategy for the area, guiding redevelopment in
the area and helping to meet the requirements of UDP Policy E5:
Development in Established Employment Areas.
2.
Development of the Masterplan
2.1
In 2009 the council appointed URBED to develop a masterplan for Patricroft
Bridge. As part of the baseline study for the masterplan, meetings were held
with all key landowners to gain an understanding of their aspirations, current
and likely future demand for sites for employment purposes, if relocation was
possible and how redevelopment would impact on the operations of any
remaining businesses.
2.2
Based on discussions with landowners and stakeholders, viability analysis
and public consultation on options for the area, a preferred option was
developed which proposed new housing to the south of Liverpool Road on the
Cawdor Street employment site currently occupied by Americhem and Barton
Industrial Estate (see Annex 2 for plan of preferred option). This site was
identified as key to unlocking the area’s potential for transformational change
of the area through housing-led regeneration. The sites identified as swing
sites in the masterplan were not considered viable housing sites in the short
or medium term. However, the preferred option was in line with Americhem’s
aspirations for a cost-neutral relocation to larger premises elsewhere in the
local area expressed during the baseline study.
3.
Change in landowner aspirations
3.1
However, in the period between the consultants meeting with landowners and
the preferred option being finalised for further public consultation, Americhem
came to the view that, in the changed economic climate, relocating the
businesses locally would be too costly. In spite of the constraints of the
current site, Americhem has decided to remain on Cawdor Street for a
minimum of five years and invest in the site.
3.2
The consultants revisited Americhem to present the preferred option and to
gain a better understanding of their plans for expansion, which include
investing £3-4 million in a new production line which will both safeguard the
existing 50 jobs and create an estimated 25-30 new jobs. It will also involve a
temporary lease of a large industrial warehouse on Barton Industrial Estate
which has been vacant for a number of years. Colleagues in Development
Control have advised Americhem these plans are in line with planning policy.
3.3
Americhem’s willingness to invest and expand its workforce during uncertain
economic times is clearly welcome. However, as a result, the preferred option
no longer has the support of key landowners and is no longer viable in the
foreseeable future.
4.
Options considered for taking masterplan forward
4.1
Americhem’s change in aspirations came after the preferred masterplan
option had been developed but before it had been subjected to public
consultation. Therefore, the council and consultants explored a number of
options for changing the direction of the masterplan to produce a document in
line with the aspirations of businesses within the study area and the local
community.
4.2
The options explored included redeveloping the Legh Street employment site
for housing and improving Bridgewater Mill and surrounding public realm.
However, redeveloping Legh Street was discounted during the baseline study
due to viability issues and improving Bridgewater Mill would not bring about
the transformational change and new housing required. In addition, changing
the direction of the masterplan at this late stage would have required
additional fees on potentially abortive work. Therefore, it was agreed that the
consultants should do no additional work but complete the masterplan report
based on the preferred option.
5.
Conclusions
5.1
The masterplan was commissioned and developed at a time when
Americhem were planning to relocate within the area and was in line with
emerging regeneration options for residential led regeneration along the
Bridgewater Canal Corridor at Patricroft Bridge. Americhem are now
proposing to stay for a minimum of five years, to invest in the site and create
additional local jobs, meaning the masterplan is not realistically deliverable at
present and could not be implemented in the short term. In the future, if
Americhem reconsider relocation as an option, the masterplan could be
reviewed to assess if the proposals remain the most appropriate solution for
the regeneration of the area and if so, could be implemented at that time.
5.2
The masterplan includes proposals such as public realm improvements in the
study area that are closely aligned with two of the priorities identified in the
Salford West Strategic Regeneration Framework: the Liverpool Road Corridor
and Bridgewater Canal Corridor. Therefore, proposed improvements to Barton
Road and Worsley Road to enhance the canal environment, and
improvements to the public realm on Liverpool Road could be taken forward
even if the Masterplan itself is not implemented immediately.
5.3
It is proposed therefore that Lead Member supports the principles set out in
the Masterplan, but recognises that implementation in the short term is
unrealistic. It is recognised that businesses, ward members, stakeholders and
residents who took the time to engage with the process will be disappointed
by the delay in moving to implementation and will need to be kept informed of
progress in future.
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KEY COUNCIL POLICIES: Unitary Development Plan, Salford West Strategic
Regeneration Framework and Action Plan 2008 – 2028, Liverpool Road Corridor
Strategy
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EQUALITY IMPACT ASSESSMENT AND IMPLICATIONS: Implementation of the
masterplan would require further public consultation and an equality impact
assessment. However, due to the proposal not to implement the Masterplan at the
present time, it is not intended to undertake further work on the EIA at this time.
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ASSESSMENT OF RISK: Low – An explanation why implementation is unrealistic in
the short term needs to be given to businesses, ward members, stakeholders and
local residents who took the time to engage as it is likely that the masterplanning
process raised aspirations about the future of the area. It is proposed a letter
explaining the situation is sent to everyone who participated in the masterplan.
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SOURCE OF FUNDING: The masterplan cost £55,000 in total. Of this, £22,000
came from the 2008/2009 Salford West Programme Fund and £33,000 was secured
from the Council’s 08/09 Housing Growth Point funding allocation. A copy of the final
masterplan report will need to be sent to AGMA along with an explanation of why
early implementation is delayed. There will not be a requirement to repay the
funding.
It was originally envisaged that further Growth Point funding would be required for
site investigations and land assembly. There is now no need to apply for further
funding.
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LEGAL IMPLICATIONS Supplied by Richard Lester, Outstationed Locum Solicitor,
ext 2129, on 27th July 2010. There are no legal implications in taking a decision not
to proceed with the masterplan.
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FINANCIAL IMPLICATIONS Supplied by Frank O’Brien ext 2585
There are no direct financial implications from the proposals contained within the
report.
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OTHER DIRECTORATES CONSULTED: Views of other directorates were taken in
account in the preparation of the masterplan. It is not considered that a decision to
put the masterplan on hold will raise any issues or concerns from other directorates.
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CONTACT OFFICER: Catriona Swanson
TEL. NO. 3646
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WARD(S) TO WHICH REPORT RELATE(S): Barton
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Paul Walker
Strategic Director for Sustainable Regeneration
Patricroft Bridge press release.doc
Patricroft Bridge
MasterplanV3_Email.pdf
Annex 1 – Masterplan boundary
Annex 2 – Preferred Option