FINAL DRAFT
CONTENTS FIGURES 1 INTRODUCTION...... 2 1 THE SITE BOUNDARY AND OWNERSHIPS ...... 5 2 CONTEXT ...... 6 2 THE CONTEXT ...... 7 3 ISSUES & OPPORTUNITIES ...... 12 3 PRISON LAYOUT ...... 9 4 VISION & OBJECTIVES ...... 17 4 FORMER PRISON HERITAGE ASSESTS ...... 10 5 DESIGN EVOLUTION ...... 18 5 CONSTRAINTS PLAN ...... 14 6 DEVELOPMENT & DESIGN FRAMEWORK ...... 23 6 URBAN DESIGN ANALYSIS ...... 15 7 MOVING FORWARD ...... 40 7 CONSULTATION MATERIALS ...... 22 ADDENDUM I - BASELINE REPORT ...... 44 8 DESIGN PARAMETERS FRAMEWORK ...... 24 ADDENDUM II - QUADRANGLE OPTIONS STUDY 9 INDICATIVE MASTERPLAN ...... 25 (TO BE APPENDED ONCE COMPLETE) ...... 45 10 AERIAL VIEWS ...... 26 11 EXCERPT FROM HERITAGE ASSET PLAN ...... 27 12 HIGHWAYS - INDICITIVE PRINCIPLES ...... 33 13 PROPOSED PUBLIC REALM FRAMEWORK ...... 36
Page 1 Central Northallerton Masterplan 1 INTRODUCTION Purpose
1.7 The project aims to : 1.1 Hambleton District Council has appointed IBI Taylor Young and • provide an overarching framework for these sites to extract maximum AspinallVerdi to work with them to produce a Development & Design benefit for the local economy; Framework for Central Northallerton. • define a vision for the East Road Area, and how these sites could 1.2 The Central Northallerton area comprises four sites in different create a better place / destination; ownerships that amalgamate to make a significant site to the east of the • understand the challenges and opportunities for investment in this town centre. These comprise: edge of town centre location; • The Former Northallerton Prison; • ensure the that the potential of the sites is maximised and the • The Former RPA site; contribution to the High Street and wider economy is realised; and • The Fire and Rescue Service Site; and • ensure the development options present high quality proposals that • Crosby Road Car Park enhance the surrounding area. • Provide a viable and realistic framework to deliver high quality 1.3 The project aims to begin to address the concerns around the now vacated development Prison and RPA sites, and formulate a coherent approach to ensure the potential of the sites as part of a wider context is realised. Without this, and adopting a piecemeal approach, the future success of the area could be compromised.
1.4 The production of the Development and Design Framework commenced in December 2013. This final document was preceded by a Baseline Paper and Options Papers and has incorporated consultation with stakeholders and the community during the process.
1.5 The commission steering group includes: Hambleton District Council (HDC) Officers, supported by representatives from the North Yorkshire County Council (NYCC) and the Local Economic Partnership (LEP).
1.6
Page 2 Central Northallerton Masterplan Baseline Review This masterplan / framework builds upon a review of the area, which established the baseline position and key challenges and opportunities for the sites in the wider context of Northallerton. It draws upon a significant amount of background information.
Central Northallerton Consultation Stakeholder Workshop This workshop enabled ideas and ambition for the Central Northallerton sites to be explored with key stakeholders. It engaged a wide rang e of representatives, including Council Members, County and District Council officers, landowners, property agents, education bodies, government quangos, parish councils and local groups.
Development of Preferred Option & Viability Testing A series of options were developed which, supported by market testing enabled the evolution into a preferred option.
Public Exhibition A public drop- in consultation session attended by over 500 people gathered further comments and The Former Northallerton Prison - as viewed from the north on East Road information to feed into the process.
Refinement of Preferred Option & Viability Testing Following the stakeholder sessions ,completion of the baseline work & the drop-in event, the development options for the site were refined and reviewed.
Drafting of the Central Northallerton Masterplan / Design & Development Framework and Delivery Strategy
Page 3 Central Northallerton Masterplan Background
1.8 Northallerton is the county town of North Yorkshire and has historically had a concentration of public sector bodies which is reflected in the local employment base. Recent pressure on public sector spending has put considerable pressure on the economy, amplified in Northallerton.
1.9 The former Northallerton Prison was vacated in November 2013, and the Rural Payments Agency in February 2014. This has resulted in the loss of 600 direct jobs and threatens further supply chain jobs.
1.10 This is a considerable concern for the Council. A job task force, led by the Local Enterprise Partnership has looked at measures to assist those affected by the closures, assisted by the Council. The Council is also, as part of the task force, looking at the spatial implications of the closures, resulting in the commissioning of this Development & Design Framework.
The Former RPA Building, Crosby Road
Page 4 Central Northallerton Masterplan
The North Yorkshire Fire and Rescue Site remains in operation. Any vacation of the site would be as a consequence of suitable alternative accommodation being sourced, including and as a minimum, the provision of a site for the fire station in the Central area of
Figure 1 The site boundary and ownerships
Page 5 Central Northallerton Masterplan 2 CONTEXT Location
Northallerton & District The Site 2.5 Northallerton is a Principal Service Centre within Hambleton District and 2.1 The site comprises four sites in different ownerships, the former the County Town within North Yorkshire. Northallerton Prison, the former Rural Payments Agency (RPA) building (Alverton Court), the North Yorkshire Fire and Rescue Service site, and a 2.6 The district is characterised by market towns, villages and hamlets, public car park owned by Hambleton District Council. Northallerton, with Romanby being the largest settlement, and along with Thirsk, accommodates around 30 % of the district’s population1. 2.2 Both the former Northallerton Prison site and the Rural Payments Agency sites have now been vacated. The North Yorkshire Fire And Rescue Service 2.7 The sites that form the basis for this Framework lie to the eastern edge of site and public car park remain in operation, with no decisions made on the Northallerton town centre, lying east of East Road that bypasses the their future as yet. Any vacation of the North Yorkshire Fire And Rescue High Street. The main connection to the High Street is formed by Zetland Service site would be as a consequence of suitable alternative Road that runs east west between the High Street and East Road. accommodation being sourced, including and as a minimum, the provision The Wider Context of a site for the fire station in the Central area of Northallerton. This framework can therefore assist in any decision making process and consider potential options for these sites. 2.8 The area is predominantly rural; the town lies between the Tees Valley conurbation and Darlington to the North, and York and Harrogate to the 2.3 The site is on the edge of Northallerton town centre. south.
2.4 The following Context Plan (Figure 2) illustrates the location within the 2.9 Northallerton is 15 minutes from the A1, has a regular train services, with Northallerton area. destinations including London, Manchester and Newcastle. Regular bus services are also accessible.
2.10 The town is also a gateway to the North Yorks Moors National Park which extends to the East Coast, the edge of the Park is only a 15 minute drive
away.
1 Hambleton Local Development Framework Core Strategy (2007)
Page 6 Central Northallerton Masterplan
Figure 2 The Context of the Central Northallerton Masterplan area
Page 7 Central Northallerton Masterplan Historic Assets
2.11 Historical mapping2 available illustrates an evolving town centre. 2.12 Much of the current High Street form dates from the mid to late Georgian period and creates a distinct and attractive well enclosed core to the town centre, with a series of alleys crossing east to west. These alleys, along with Zetland Street provide vital connections to the proposed Framework site.
2.13 The former prison buildings are the only buildings of historic interest within the site boundaries and a number of the buildings have recently been listed (Grade II) by the Department for Culture, Media and Sport following the recommendations made by English Heritage; further details Crosby Terrace, the prison wall is opposite follow in the next section.
2.14 The prison site evolved in the latter decades of the 20th Century and the northern building (1- the Courthouse, on the following plan - Figure 3) that previously formed the full quadrangle has been demolished.
The Staff Tenement Range, Part of the Prison, East Road 2 maps.northyorks.gov.uk & old-maps.co.uk
Page 8 Central Northallerton Masterplan The Former Northallerton Prison
2.15 During the project period a number of buildings within the former prison complex have been added to the List of Buildings of Special Architectural or Historic Interest by the Secretary of State, following recommendations made by English Heritage. These were the remaining components of the Quadrangle to the north of the site and the 1852 Female Wing; these were listed on the 11th March 2014 at Grade II.
2.16 The following plan is taken from HDC research and illustrates the arrangement of historic buildings that are currently on site; and also includes the location of the Courthouse building that has since been demolished. The buildings, with the exception of the Court House were all considered as part of the listing process: • 1 - The Courthouse (now demolished) • 2- The 1818 Female Wing (Grade II listed) • 3 - Link Building (Grade II listed) • 4 - 1852 Female Wing (Grade II listed) • 5 - The Governor’s House (Grade II listed) • 6 - The Staff Tenement Range (Grade II listed) Figure 3 Prison Layout (Source: HDC) • 7 - The Chapel Wing (Not recommended for listing) • 8 - The 1852 Male Wing (Not recommended for listing)
Page 9 Central Northallerton Masterplan
Figure 4 Former Prison Heritage Assets
Page 10 Central Northallerton Masterplan Recent /Proposed Investment Local Development Framework, as adopted in December 2010. A planning application is expected in 2014. 2.17 The sites have seen minimal change in recent years. Extant Permissions within the Town Centre 2.18 In the wider town centre context, the addition of the Tesco store was the last large investment in close proximity. 2.22 There are no extant permissions that are considered to have immediate 2.19 The town centre core, given the historic context does not easily lend itself impacts upon the delivery of the sites. Two housing developments to large development sites, therefore the upcoming availability of these currently under construction noted for their proximity to the town centre sites as a whole presents a significant opportunity for the town. are: • 11/02264/FUL - Oak Mount, Thirsk Road, Northallerton, North Rutson Hospital Site Yorkshire, DL6 1PR Demolition of former residential home and construction of 11 2.20 This site is located to the north of the town centre and has been marketed. dwellings, garages with access road and public open space Plans were considered for a mix of uses including young people's affordable housing, workshops and training, and a heritage resource • 09/00795/FUL - Former York Trailers, Yafforth Road, Northallerton, centre, however This proposal was abandoned because of the loss of North Yorkshire, DL7 8UD funding opportunities. Pre-planning application discussions are in progress Application for the layout of land and construction of 283 dwellings, concerning potential retail uses for the site. associated garages and landscaping
North Northallerton Development Area
2.21 The North Northallerton Development Area is subject to a Masterplan (2011) as prepared by IBI Taylor Young for a sustainable mixed use extension to the north of the town, comprising around 965 new homes, employment space and recreation facilities. The extension also includes a new road linking Stokesley Road to Darlington Road through the area. The site is allocated within the Allocation Development Plan Document of the
Page 11 Central Northallerton Masterplan 3 ISSUES & OPPORTUNITIES
Opportunities
An active market town Residential population in close proximity
Edge of centre development sites Wider growth of North Northallerton
Well connected into existing Attractive location on edge of the movement network North Yorks Moors National Park
Page 12 Central Northallerton Masterplan Constraints
3.1 The following Site Constraints Plan (Figure 5) illustrates the site issues. There are a number of constraints as usually associated with sites within an urban area that have already been developed, including the recent statutory listing of a number of the former prison buildings, as covered in later sections.
Urban Design Analysis
3.2 Figure 6 summaries the opportunities presented through the urban design analysis. Full urban design analysis is provided in the Baseline Report (Addendum I).
Page 13 Central Northallerton Masterplan
Figure 5 Constraints Plan
Page 14 Central Northallerton Masterplan
Figure 6 Urban Design Analysis
Page 15 Central Northallerton Masterplan Key Drivers Delivery overview
3.3 The following are considered the key drivers for the Central Northallerton 3.5 This Development and Design Framework is supported by a Delivery Masterplan: Framework (see Section 7). The Delivery Framework provides advice on • The closure of two major employers within the town; supporting development on the Central Northallerton sites. It sets out • The need to create new employment opportunities; actions to support the delivery of the sites. It also includes • The positive re-use of Grade II listed buildings; recommendations on delivery mechanisms including governance and • Supporting the town centre future viability and vitality; and marketing. • Creating quality connections to the High Street.
Key Challenges
3.4 The key challenges are considered to be the following: • A strategic approach to ensure that development is cohesive across the Framework area; • Creating the right environment for investment - using the Framework to inform decision making and engage with potential developers; • Introducing a new activity area away from the linear, traditional High Street; • Ensuring connecting to the High Street, improving and enhancing existing linkages; The Fire Service Site, Crosby Road • Creating an area of flexible & usable public space; • Promoting the opportunity for the positive reuse of the Grade II listed former Prison Buildings; • Attracting new uses to provide opportunities for employment; • Ensuring landowners are fully engaged and supportive of the Framework; and • Future viability of the Prison building conversion and reuse.
Page 16 Central Northallerton Masterplan 4 VISION & OBJECTIVES Objectives
Economy & land uses 4.1 Realise the potential of the Central Northallerton sites; to set the scene for future investment and positive reuse of the former Northallerton prison • Maximise job related opportunities and former RPA site as part of a wider context. • Provide a mix of uses that best complement the High Street and 4.2 Through the Framework process the team have drawn upon the on-going NNDA baseline reporting that is being undertaken, including the now complete • Support town centre vitality and viability Hambleton Retail Study (GVA, November 2013) and the Hambleton Economic Study which is currently in preparation (by GVA). Environment & design
• Promote design quality • Make the most of heritage opportunities, without compromising development viability
Movement & public realm
• Manage traffic impact, in town centre context • Provide for appropriate parking, in town centre context • Transform pedestrian connections to the High Street
Deliverability
• Promote phased deliverable & realistic opportunities
Page 17 Central Northallerton Masterplan 5 DESIGN EVOLUTION Option 1 - Leisure Led
The Options
5.1 A series of options were developed to inform the preferred option. 5.2 At this stage within the Framework development the outcome of the English Heritage initial assessment of the former Northallerton Prison site had not been established, therefore the options tested a number of different options based on the information gathered to date regarding the building condition and the possibilities for retention.
5.3 The options also considered the Fire and Rescue Service site as a potential wholesale redevelopment site. This was based on a long term vision for the site; but with the caveat that no decision had been made and that any vacation of the site would be as a consequence of suitable alternative accommodation being sourced, including and as a minimum, the provision of a site for the fire station in the Central area of Northallerton. Options for the Fire and Rescue Service include the retention of the whole or part The Proposed Uses: of the site to enable provision of the operational requirements. Former Northallerton Prison
• A leisure complex to include uses such as cinema and restaurant. • Drive Thru food or drink outlet Crosby Road Car Park • Retained in part, with partial development for housing Fire Service site • Housing
Former RPA Site • Existing building remodelled for education use
Page 18 Central Northallerton Masterplan Option 2 - Retail & Residential Led Option 3 - Mixed Use
The Proposed Uses: The Proposed Uses: Former Northallerton Prison Former Northallerton Prison • Hotel with family pub & restaurant • Hotel with family pub & restaurant • Retained prison building (1818 Female Wing) • Retained prison buildings (Staff tenement & Governor's House) • Higher density residential courtyard • 15- 20,000 sq ft food store Crosby Road Car Park Crosby Road Car Park • Retained as existing • Retained as existing Fire Service site Fire Service site • Active retired residential development • Residential development Former RPA Site Former RPA Site • Existing 15- 20,000 sq ft food store • Active retired residential development
Page 19 Central Northallerton Masterplan Option 4 - Emerging Preferred Option The Proposed Uses: Former Northallerton Prison • Hotel with family pub & restaurant • Retained prison buildings (1818 Female Wing) • 15- 20,000 sq ft food store Crosby Road Car Park • Retained as existing, infill at Lascelles Lane entrance; with potential for future residential development extending from the Fire Service site Fire Service site • Residential development (potential for bungalows) Former RPA Site • Active retired residential development
Page 20 Central Northallerton Masterplan Consultation Public Drop-in Consultation Event
5.4 Engaging key stakeholders is a key part of the project evolution, assisting 5.8 The resulting emerging preferred option was presented, along with the in the understanding of issues and opportunities as well as developing earlier options, at the drop-in public consultation event on the 20th consensus. During the baseline stage the commission involved targeted February 2014. The event was attended by approximately 500 people. The one-to-one interviews, briefing sessions with Members and a stakeholder content was also made available on the Hambleton District Council workshop, followed by a public exhibition of the emerging preferred website following the event, to enable wider access3 and placed on display option. Over 30 stakeholders have been involved including Council at the Civic Centre, Northallerton. Members, District and County Council officers, landowners, property 5.9 The sessions raised a number of queries, which where possible were agents, education bodies, government quangos, parish councils and local addressed through the on-going Framework process . Many concerns groups. related to the uses being proposed being deliverable and viable which has Stakeholder Consultation Workshop been tested through on-going work that has resulted in the proposed Design Parameters Framework and the Indicative Masterplan.
5.5 Key themes emerged from the initial briefings with Members. These were 5.10 A frequently asked question related to the possibility of the North tested at the stakeholder workshop through a number of structured Yorkshire Police Headquarters relocating to the RPA site. North Yorkshire discussions, in which attendees were encouraged to consider how they Police considered refurbishment of current buildings and a proposed new would like to see the sites develop. build, and the Rural Payments Agency building was part of that 5.6 The stakeholder session succeeded in developing a broad degree of consideration. However, the building could not meet the overall needs of consensus around a phased mixed use approach to the sites in their town the organisation for a new Northern Base that included a new purpose centre context. Attendees were supportive of the exploration of built custody suite that was to current Home Office standards. development and design options that balanced aspirations with realistic 5.11 Yorkshire Fire & Rescue Service also provided further guidance on the use delivery. of their site for current and future needs. For the foreseeable future the 5.7 Following the session the design options were developed to test various site will remain in operation; however, in the longer term a sub option combinations of development. During this stage further viability and was proposed in which the Fire Service requirements could be provided delivery testing informed the evolving options. within a smaller site footprint either in the current location, or at a
3 http://www.hambleton.gov.uk/central-northallerton-masterplan
Page 21 Central Northallerton Masterplan suitable alternative in the central area of Northallerton, thus releasing an area for development.
5.12
The Drop-in Consultation Event (Source: Darlington & Stockton Times)
English Heritage
5.13 The listing of the Quadrangle and 1852 Female Wing of the former prison buildings evolved during the Framework process; the resulting addition presents both opportunity and challenge. Since listing a meeting with English Heritage enabled discussions around implications and moving forward, including using the principles of 'constructive conservation'4
4 https://www.english-heritage.org.uk/professional/advice/conservation-principles/constructive-conservation/
Figure 7 Consultation materials displayed at the drop-in event
Page 22 Central Northallerton Masterplan 6 DEVELOPMENT & DESIGN FRAMEWORK
6.1 A Design Parameters Framework plan has been formulated to create a set of design considerations that a new development should refer to; this is supported by an Indicative Masterplan that presents a visualisation of what a scheme might look like. This has enabled testing of delivery and viability to determine the preferred uses for the Central Northallerton area.
6.2 The Framework offers an opportunity to realise the vision through the creation of a coherent approach to the sites, addressing the different ownerships, creating a mixed use area that complements the existing High Street offer and delivers a successful development for the town centre, in terms of attracting employment opportunities and investment.
6.3 The following themes will be addressed: • Land Use and Activity • Movement & Access • Built Form and Architectural Response • Public Realm
Page 23 Central Northallerton Masterplan
Figure 8 Design Parameters Framework
Page 24 Central Northallerton Masterplan
Figure 9 Indicative Masterplan
Page 25 Central Northallerton Masterplan
Figure 10 Aerial Views - east along Zetland Street and south along East Road. Views show Fire Service provision retained as existing.
Page 26 Central Northallerton Masterplan Land Use & Activity 6.8 The Former Prison Site is an area that incorporates what is the most difficult aspect of the Framework site in the retention of the former Grade 6.4 The four different ownerships within the Central Northallerton area have II listed Prison buildings. The buildings are of varying degrees of condition, informed the site divisions in terms of uses and how the site is coherently in terms of their exteriors and interiors. A range of potential uses are planned. highlighted through the Design Parameters Framework to include retail, 6.5 The overall layout proposes a mix of uses. Across the Framework area residential, museum, leisure, business; and a hotel. Key features noted these include hotel/ leisure, retail, food and drink, residential, elderly from the listing are summarised at Figure 4. residential, education, business, museum & community uses. 6.9 Within the Quadrangle, the Staff Tenement Range offers the most flexible 6.6 A number of fixes have emerged throughout the Framework preparation of uses, as the interior is notably not of interest, the building was last in these are summarised as: use as office space. The Governor's House, whilst elements are intact, is • The retention and Grade II listing of the Quadrangle and Female Wing again thought to be of a lesser interest inside. The Link is notably not of the Former Northallerton Prison buildings; significant in its own right therefore is potentially more flexible. The 1818 • The retention of the Crosby Road car park in its current use; and Female Wing survives well intact along with the Female Wing, the two • The retention of the whole or part of the Fire Service site to enable former wings have higher level window openings. These particularly will provision of the operational requirements. require detailed conservation architecture to understand the internal spaces. Addtional work is to be undertaken and will be appended to this 6.7 The Former Prison Site now incorporates the following Grade II Listed masterplan. The work will explore the constraints and opportunities Buildings: around the listed quadrangle buildings, producing an Options Study to 1)The Quadrangle inform interested parties within the site. -a) Staff Tenement Range -b) Governor's House 6.10 The indicative masterplan incorporates retail, leisure, community uses, as -c) 1818 Female Wing well as a family pub / restaurant across the Quadrangle & Female Wing. A -d) The Link Building potential extension is proposed to create a flexible space where needed,
to support the adaptation of the existing buildings; for example this could 2) The Female Wing incorporate such uses as kitchens and service areas. Upper floors could be used as meeting space, to accommodate a community based offer or Figure 11 Excerpt from Heritage Asset Plan heritage/museum room. (Full plan at Figure 4)
Page 27 Central Northallerton Masterplan 6.11 The northern corner of the site offers opportunity for a new build 6.16 The Former RPA site is proposed to be retained, with some remodelling, to development, this proposes retail and residential (apartments) with adapt for an Educational use. An education provider is currently examining garden space and parking. A sub-option also considers a hotel, this would in detail the feasibility of using the site. link (in terms of cohesive uses) to the restaurant / pub proposed. 6.17 A sub-option proposes that the site is cleared and 'active retired' 6.12 A new space is created to adjoin Zetland Street and to link south to the accommodation provided, envisaged to respond to a changing housing food retail. This space could be activated by uses within the Quadrangle. market. The site offers the opportunity to provide adequate parking and The space is envisaged as shared space with a multi functional use; whilst garden space to diversify offer to that already available. a space to relax this could also accommodate overflow car parking, and also be used to hold town events. The hard landscaping of this space will be crucial in creating such a space, ensuring it is adaptable for the uses envisaged, and that the look and feel of the space is appropriate.
6.13 The southern portion of the Former Prison site South lends itself to food retail, as the location closest to the town centre this is the most appropriate location in considering the wider Framework area.
6.14 The Crosby Road Car Park is retained as is, to support a widening of town centre uses. The Lascelles Lane entrance area will be in-filled with a small Retail & Hotel, Kidderminster Food Retail , Milnthorpe residential development, with the Crosby Road entrance retained as the access and egress.
6.15 The Fire Service site is to be retained as existing. For the illustrative masterplan longer term options are considered. These include a full redevelopment, alongside a sub option whereby the Fire Service requirements could be provided within a smaller site footprint either in the current location, or at a suitable alternative in the central area of Northallerton, therefore releasing the remainder of the site for residential use. Here, bungalows could also be appropriate given the proximity to the Housing, Claypenny, Easingwold Elderly Housing, Egremont town centre in serving existing housing needs.
Page 28 Central Northallerton Masterplan the Crosby Road car park and surrounding residential area to the High Street continue to be supported, and movements by residents and visitors of this proposed scheme are encouraged to the High Street. A new pedestrian link across Crosby Road car park will support a pedestrian connection to Lascelles Lane and the wider
area. The existing pedestrian crossing at East Mixed Use, Heritage Building Conversion & Holbeck Urban Village, Leeds Road linking will need to be relocated to form New Build a legible route to the High Street along Zetland Street and into the Quadrangle. Movement & Access 6.22 It is proposed that the connection will be improved in terms of public Pedestrians, Cyclists & Public Transport realm quality for pedestrians and cyclist movements; this will be further supported improvements at the Zetland Street & East Road junction. 6.18 Creating connections to the town centre is a key objective in ensuring the 6.23 No changes are proposed to the public transport services, however, the proposed development becomes an extension of the High Street offer. connection to Zetland Street is important as this offers the closest link to Creating connections access local bus services. 6.19 Within the site two connecting routes between East Road and Crosby Road 6.24 Two alleyway connections area also highlighted for improvement. New are proposed, introducing a new connection across the middle of the site, Row5 (a Public Right of Way ) and Chapel Entrance6 are both key and retaining a link across the north area of the site. The northern route is connections to the site and building on work previously undertaken in the proposed through a shared space to support both pedestrians and cyclists. in the Northallerton Hidden Yards and Spaces (2010) study could be 6.20 A new civic space is created within the Quadrangle, this will be connected improved (this is covered in more detail in the Public Realm section) north-south through the site, and should support cycle parking. 6.25 New Row alley at present from the High Street to East Road, passing in Connecting with the High Street front of the existing Tesco store so is already a well used route. 6.21 Zetland Street offers the strongest link to the existing High Street for 5 As referred to in Northallerton Yards & Hidden Spaces (August 2010) pedestrians, and will be crucial in ensuring that existing movements from 6 As referred to in Northallerton Yards & Hidden Spaces (August 2010)
Page 29 Central Northallerton Masterplan 6.26 Chapel Entrance is also well used, passing to the rear of the existing Tesco, along A167 East Road, roundabout at A167 South Parade / High Street again connecting the High Street to East Road. The space passes past a Junction. number of cottages so is well overlooked. 6.30 The quality of Zetland Street junction would be increased through an improved pedestrian crossing experience. This is could be a raised bed Vehicles junction to pavement height to supporting a pedestrian connection between this area and the High Street, whilst helping calm movements 6.27 The proposed development is well placed to connect into the existing along East Road to support cyclists. street network. The existing traffic movement that allows a one way movement south from East Road onto Crosby Road at the northern tip of 6.31 The proposed development on the former prison site is to take access the Former Prison will be retained as is. from Crosby Road, this is on the advice of North Yorkshire County Council Highways (NYCC) to ensure that traffic movements are not affected along 6.28 Junctions around the development site will East Road. The Indicative Masterplan (Figure 9) and Highways - Indicative be improved; these include the junctions of The Development Principles (Figure 12) illustrate arrangements that might be Link with East Road and Crosby Road to required when development comes forward. A number of details will need accommodate the necessary traffic movements to be considered as set out further below. generated by this development change within the area. The closure of the RPA building will remove a significant number of movements from the 6.32 The Crosby Road car park is to be limited to just one access /egress. Taken network at peak times, but this will be balanced with the proposed from the current Crosby Road entrance, removing the current vehicle developments. access from Lascelles Lane whilst retaining a pedestrian route; this is to remove current 'rat-running' through the car park. 6.29 Along East Road linked signal improvements will need to be considered in terms of requirements and sequencing; to enable traffic flows around 6.33 NYCC Highways also advised that subject to redevelopment, a vehicular town to be maintained these will need to be modelled to inform these access for the former RPA site should be taken from Crosby Gardens if this improvements. The area that will need to be considered as part of this will site is to be redeveloped and the current building removed. encompass a wider area than the Central Northallerton site, moving 6.34 In considering the wider site, Zetland Street is a one way street connecting clockwise this would include B1333 High Street up to roundabout with from the High Street to East Road; this arrangement will remain A167 Friarage Street, A167 Friarage Street, A684 Brompton Road (Asda unaffected. crossing), A167 Friarage Street (Friarage Hospital crossing), crossings
Page 30 Central Northallerton Masterplan 6.35 Access to the Fire Service site also needs careful consideration. Should a access is closed and in-filled with residential development to deter 'rat- suitable alternative site be found to meet their needs as outlined earlier, running' across the car park onto Crosby Road. as the illustrative masterplan shows the site could be subject to full re- 6.40 The Indicative Masterplan illustrates how the proposed development can development or a condensed site requirement. An important point to note incorporate adequate car parking on site to support a varied mix of uses. is that any service retained on this site would require frontage onto Crosby Road, and that the highways arrangements should respond to the specialist requirements in terms of vehicle access. A sketch scheme to how access could be provided, should this option come forward has been prepared with advice from NYCC and is incorporated to follow Figure 12.
6.36 Overall it is considered that the eastern area of Northallerton would benefit from a Sustainable Travel plan approach.
Servicing Crosby Road Public Car Park
6.37 Servicing for all the proposed development is taken from Crosby Road within the existing car parking areas. The hotel would be taken from Crosby Road within the proposed area of adjacent car parking; for the family / pub restaurant a small area is provided adjacent to the extension, for the foodstore a yard is provided to the south of the foodstore building.
6.38 Any servicing for the RPA site would be taken from the main access as proposed from Crosby Gardens.
Car Parking
6.39 The Crosby Road car park will remain unaffected by the Framework in terms of parking space numbers; it is proposed that the Lascelles Lane
Page 31 Central Northallerton Masterplan
Figure 12 Highways - Indicative Development Principles Page 32 Central Northallerton Masterplan Built form and Architectural Response site at the East Road and Crosby Road junction is also highlighted as announcing a new gateway to the town centre; development proposals 6.41 The area should respond to the existing high quality architecture of the should respond to this. town centre. The architecture should be appropriate to the context and 6.43 The East Road frontage is important, but it is noted that any development setting of the site area. Contemporary architecture should be be sensitive on site needs to balance how it addresses the elevations on all sides due to to the existing character, interpreting local details, nuances and rhythms. the 'island' arrangement of the site. Public footpaths should to be The interface with the Northallerton town centre conservation area, which addressed by positive frontage to create feelings of activity and safety to extends across a portion of the East Road frontage, is particularly support movements at all times of day. important and an opportunity is presented to consider the benefits of extending the conservation area to incorporate the Quadrangle. 6.44 Within the Former Prison the building height within this block is proposed as up to three storeys; this allows for a variety of development scenarios 6.42 The finer grain of the retained former and articulation of key design elements. prison buildings helps supports a visual connection and provides a positive termination 6.45 Parking and servicing as required should be accommodated on site, and to views from the conservation area. should be well landscaped (hard and soft) to soften the impact of this. The Refurbishment and conservation of the site boundary could be improved through soft landscape treatments buildings should accord with best practice and making a significant positive change. approaches; this could include the sensitive 6.46 The Crosby Road car park remains adaptation and extension of buildings but any unchanged with the exception of the proposed such schemes should seek early advice from infill plots on the Lascelles Lane frontage. A Hambleton District Council. The additional terrace of properties could be provided here Options Study to be prepared and appended to this Framework will responding to the existing terrace of homes to provide insight into the potential of these buildings. The addition of the south. Brick, interspersed with render, is development to the northern corner of the site should provide strong prevalent along the existing street, therefore it would be appropriate for enclosure to the street; for the indicative plan a small set back from the any infill development to respond to this. These homes would be two pavement edge is proposed to ensure privacy of any ground floor storey. accommodation. Buildings across the plan should ensure that the quality
of the place is improved by a good sense of enclosure. The corner of the
Page 33 Central Northallerton Masterplan 6.47 The Fire Service site remains in adjoining residential interfaces. Any extensions could take the building to operation in its existing arrangement for the four storeys, however these would need to assimilate with the existing foreseeable future. Should a condensed site architecture and respond to appropriate amenity distances from the requirement be sought on part of the site, this existing residential properties. will have specific requirements that cannot be set through this masterplan. The remaining portion of the site released will be residential development, this would need to respect the existing context of Crosby Road, brick being the common material, therefore it is appropriate for the development to respond to this. The location of the access to any residential development should also be informed by wider requirements of uses, as indicated on the sketch scheme at Figure 12.
6.48 The former RPA site is flexible, the setting back of a building from the Crosby
Gardens elevation to accommodate the new Contemporary interpretation Sensitive re-use of heritage Strong enclosure to public access creates a different site arrangement, of traditional housing buildings space allowing a softer frontage to Crosby Road, however, a stronger building line would not be out of place here, respecting existing building lines of the dwellings on Crosby Road. The building height could rise to four storeys, to allow for variety of development scenarios and articulation of key design elements across the site; this is acceptable if the elevation is moved back from the Crosby Gardens frontage, and with the appropriate amenity distances from the existing residential properties.
6.49 The alternative option retains the existing RPA building and remodels this Contemporary extension and Reusing heritage buildings Traditional housing styles for an Education use. The approach here should be sensitive to the infill with an untraditional frontage using varied shared surface
Page 34 Central Northallerton Masterplan Public Realm Framework 6.54 Creative Lighting strategies to the buildings and space would support a visual connection in the evening hours, creating an attractive vista to 6.50 The Framework will create a safe and attractive public realm which Zetland Street at all times of the day. prioritises pedestrian movement through the area. The pedestrian routes 6.55 The space will enable a connection to the southern portion of the Former are to be supported by active frontages at ground floor and buildings Prison site, and connect into a east west central connection. should form a positive and strong enclosure to streets and spaces. The following Public Realm Framework Plan (Figure 8) illustrates the key 6.56 This central route aligns with route to the Chapel Entrance alleyway. proposals. Connecting with the wider area New connections 6.57 Zetland Street is the key connection to the High Street. The High Street 6.51 New areas of public realm will be created through the opening up of the surface treatment ends at the junction with Zetland Street, this gives a Former Prison site. The key route created is across the site, this retains an visual clue to pedestrians suggesting that this street is not important. To existing movement connecting the High Street, via Zetland Street, to the support existing business along this street, and to support the connection Crosby Road car park. to the Central Northallerton area this street could be improved through hard and soft landscaping proposals. 6.52 The connection will be part of a shared space; this is the circulation and car parking associated with development within the north of the Former 6.58 Key spaces A and B are highlighted for treatment to improve pedestrian Prison and uses accommodated within the Former Prison buildings. experience, this could be through a raised bed junction or crossing area .
6.53 An area of Civic Space will be created adjacent to the junction with Zetland 6.59 The Chapel Entrance and the New Row alleyway could be improved to Street, and within the Quadrangle. The space adjacent to the junction create positive connections to the new area. The connections here are with Zetland Street will terminate views along Zetland Street, and will form very important in supporting pedestrian movements between the Central a key visual connection with the High Street. Within the Quadrangle this Northallerton area and the High Street. space will be flexible, allowing a number of activities. This could include 6.60 Using the principles from the previous Hidden Yards and Spaces (2010) overflow car parking across a portion of the space, or an area for market study commissioned by Northallerton & Villages Community Forum, the stalls connected to the existing weekly market; such as food and drink alleyways will be improved in terms of the surface materials, their stalls allowing space to sit out. demarcation from the High Street, legibility and lighting to improve safety (with particular reference to the New Row alley).
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Figure 13 Proposed Public Realm Framework
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Raised bed junction at Use of high quality materials High quality public realm Ginnel improvement, Bedale Ginnel improvement to Mix of materials to delineate pedestrian crossing, Sheffield to delineate space, Glasgow creates shared space, Glasgow Cottages, Bedale spaces within street
Pedestrian priority through Multi-purpose public space, a space used for markets and Lighting within the public Inset paving detail could be Creative pavement detail as treatment, Liverpool creates car parking but also... events; Crewe realm, West Bromwich used to illustrate site heritage part of functional public realm
Page 37 Central Northallerton Masterplan RESPONSE TO OBJECTIVES without the northern edge to the Quadrangle where the Maximise job The proposed indicative masterplan mix of development compromising Courthouse once stood offers opportunity for related could generate up to 150 full time jobs and up to 95 jobs development interpretation through built form or through landscaping. opportunities during construction7. viability
Provide a mix of A complementary range of town centre uses, Manage traffic Improvements to signalling along East Road, allied with uses that best strengthening the tourism and leisure facilities, impact, in town improvements at The Link at junctions with East Road and complement the diversifying the retail opportunities, and widening the centre context Crosby Road, will ensure that traffic impacts are managed. High Street and residential offer. New accesses onto the Former Prison will be taken from NNDA Crosby Road, ensuring movement along East Road is not inhibited. Support town The opening up and integration of the prison site as a Provide for The Crosby Road Car Park remains unchanged in terms of centre vitality historic cluster will create an attractive complementary appropriate number of spaces provided; new uses proposed each can and viability offer to the existing High Street. The improved connections parking, in town be supported by associated parking provision on site. along Zetland Street, and through improvement of the centre context existing alleyways will support movement between the sites and improve the opportunities for existing businesses Transform The pedestrian connections to the High Street are essential along Zetland Street. pedestrian in ensuring the success of the scheme and it meeting with connections to objectives to support the town centre. Public realm hard Promote design High quality, contemporary design allied with sensitive the High Street landscaping improvements along Zetland Street, and at quality renovation of existing historic buildings will respond to the crossing with East Road will support ease of movement heritage context The re-use of the heritage assets provides and create a legible connection. Improvements to Chapel an exciting opportunity to promote quality design in Entrance and New Row will further support and encourage response to the adjacent conservation area. Development movement. to the north of the Quadrangle will respond existing Promote phased The existing land ownerships have been considered within building lines, and the historic arrangement of the former deliverable & the indicative scheme and form the phasing for the Courthouse in this location. New buildings within the realistic scheme, the delivery of phases is not dependent on other masterplan area will sensitively respond to the constraints. opportunities variables and each phase can be delivered independently Make the most The retention of the Quadrangle and Female Block as of the others of heritage Grade II listed buildings provides both opportunity and opportunities, challenge for prospective developers. The reinstatement of
7 Approximate figures generated by using the estimated floor spaces.
Page 38 Central Northallerton Masterplan POLICY RESPONSE & DESIGN PRINCIPLES Character Creation of contemporary building responding to heritage Use The Central Northallerton Framework area is on the edge context with appropriate materials, detailing, scale, of the town centre, as a brownfield site a sequential massing and proportions. Buildings should be scaled to approach is required for town centre uses as per the NPPF8 acknowledge respond to the Grade II listed Former Prison and Local Development Framework (LDF)(DP22)9. buildings and existing historic townscape (conservation The uses proposed support market town regeneration and area boundary) to accord with policy DP2816. Development provide a sustainable mix of uses, according with policy position and massing, materials and design should consider DP1910 and DP3211 respectively. the heritage setting and wider context; and should be of The recent Retail Study12 concluded there was no High quality design is sought, considering principles of use, quantitative need within the centre, however market movement, form and space (DP32)17. testing has revealed there is a qualitative requirement Layout Development should respect the historic Quadrangle (Addendum II). arrangement, and the layout should support key street and The re-use of these brownfield sites supports the strategic frontages to support movement in a safe and attractive approach set out in the LDF13. environment in accordance with policy (DP28 & DP32)18. The long term option and sub-option for housing on the The layout should respond to key gateways. existing Fire Service site, Crosby Road supports the Public Realm Key areas of public realm through the northern area of the allocation NM414, although noting that the site is deemed Former Prison site require particular attention to create a to be unable to deliver any housing within the Plan period multi-purpose and flexible space to prioritise pedestrian and has been removed from the latest Strategic Housing movements and create a quality of setting appropriate to Assessment (2013)15. Grade II listed buildings (DP33)19. In wider links for Zetland The Central Northallerton Framework area provides a mix Street, this should provide a strong visual connection of uses, these should be arranged to allow for appropriate between the High Street and the Central Northallerton car parking provision where required, and to enable linked area. The Chapel Entrance and New Row alleyways should trips to be made, creating symbiotic relationships between be improved with reference to principles set out in the uses. Northallerton Yards & Hidden Spaces (2010) report. Views Key views south along East Road and east along Zetland Street will be improved through the development of the 20 8 National Planning Policy Framework (2012) Former Prison site (DP32) 9 LDF Development Policies (2008) 10 LDF Development Policies (2008) 11 LDF Development Policies (2008) 16 LDF Development Policies (2008) 12 GVA Retail and Town Centre Uses Study (2013) 17 LDF Development Policies (2008) 13 LDF Allocations (2010) 18 LDF Development Policies (2008) 14 LDF Allocations (2010) 19 LDF Development Policies (2008) 15 Strategic Housing Land Availability Assessment (2013) 20 LDF Development Policies (2008)
Page 39 Central Northallerton Masterplan 7 MOVING FORWARD • A new foodstore, potentially either discount or upmarket sector • Additional comparison floorspace • Additional leisure facilities, potentially including a hotel, Development Delivery restaurant/bars, and health club • Housing Introduction Land Ownership 7.1 This section of the Framework summarises delivery path for development of the Central Northallerton site. It sets out the development context, 7.6 The sites within the Central Northallerton Framework are in four separate broad principles and process of delivery and provides high level analysis of ownerships. Figure 1 (at Section 1 - Introduction) identifies these land development viability. ownerships. The red line represents the Central Northallerton site boundary. Market Context 7.7 Consultation with the four landowners through the Framework process 7.2 A review of the property market was completed as part of the baseline has confirmed the commitment of landowners to the Framework and the analysis which informed the Central Northallerton Framework. The potential availability of sites for development. The former Prison and RPA property market review provides a high level overview of the commercial office sites are each available immediately for redevelopment. and residential property markets affecting the Central Northallerton sites. Redevelopment of the Fire Service site will be determined by the Fire The conclusions of the property market review are: Authority and might be considered as part of redevelopment of existing facilities to provide a new fire station on site, or following relocation of the 7.3 The opportunity afforded by the cluster of edge-of-centre sites has the fire station and other facilities to another suitably located site or sites. potential to make a significant contribution towards helping to mitigate Development of the car park site will be limited to discreet infill job losses and current pressures on the economy. development, which could be delivered in the short term or at a later date 7.4 Given the existing supply of available office and industrial premises in in tandem with potential future redevelopment of the fire station site. Northallerton, there will be little, if any, developer interest in additional employment development in the Central Northallerton Framework area. The Framework and Phasing
7.5 Land uses should focus on other town centre uses, including retail, leisure 7.8 The Central Northallerton Framework provides a deliverable mix of uses and housing. Viable and deliverable development will potentially include: and supports phased delivery. The Framework provides a mix of land uses
Page 40 Central Northallerton Masterplan that will complement each other, yet are not directly dependent upon 7.12 Appraisals have been prepared for each site within the Central each other for delivery. Each of the differently owned sites can be Northallerton Framework to calculate the residual land value. That is the delivered independently. There is no given priority or sequence to which sum available to acquire land after all estimated development costs and development of individual sites. This is important given the different developers profit is discounted from the estimated gross development financial and operational pressures for the four existing landowners. value.
7.9 The local highway authority has indicated that there are potential highway 7.13 There is a minimum value for development land which developers will improvements associated with redevelopment of the former prison site have to take into account in order to successfully bid for a site. It is for retail and leisure uses as highlighted in the respective plans at Figures entirely appropriate that this value reflects reasonable infrastructure 8, 9, 12 and the supporting text. It is anticipated that these works will be costs, affordable housing and other planning contributions. In practise, phased with the redevelopment of the prison site. Transport modelling landowners will be unwilling to part with their land until it reaches a level associated with a future planning application or applications is necessary that they feel is equivalent to its worth or adequately compensates for any to determine the detailed design and phasing for implementation of loss of income or inconvenience. Utilising the outputs from the residual highways improvement works. appraisal, the judgement of the market value (or price at which landowners will part with land) determines the viability of the NNDA. Development Viability 7.14 The CIL Viability Report prepared by Peter Brett Associates (PBA) identifies threshold land values for development land for a range of uses. It is 7.10 AspinallVerdi has prepared an initial, high level assessment of the financial reasonable to assume (given the landowners support for the Central viability of the preferred development option in the Central Northallerton Northallerton Framework) that they will be willing sellers if a reasonable Framework. The appraisal is based upon data gathered at the baseline price is achieved for the land. It is fair to adopt the threshold land values stage, combined with other assumptions adopted in the Council’s existing identified by PBA as an indicator for development viability. CIL and affordable housing viability assessments. 7.15 A high level development appraisal identifies that the Central 7.11 The appraisal have been prepared based upon best available evidence. Northallerton sites will generate a residual land value for the residential The development has a number of potential cost constraints (including elements (the RPA site, parts of the car park site and the fire service site, if highway improvements, site remediation, a culvert running under the it becomes available for development) that exceeds the threshold land prison site and site clearance) which could add significant abnormal costs value. to development. Within the scope of this Framework it has not been possible to fully investigate and cost these potential works.
Page 41 Central Northallerton Masterplan 7.16 A high level development appraisal identifies that for the prison site the Development Delivery foodstore element will generate a residual land value that is just below the PBA threshold land value for supermarket sites. Given the existing value 7.19 Throughout the framework preparation process, there has been significant of the site and the significant potential uplift, the residual land value is development interest in the site and the framework proposals. The retail likely to be acceptable to a willing land owner and suggest that and leisure development proposed in the framework are of significant development of this part of the site is viable. potential interest to developers and occupiers and there is undoubted 7.17 The northern part of the prison site is constrained by the four newly listed demand for good residential sites in the town. It is reasonable to expect prison buildings, which will have a significant impact on how this part of private sector delivery of the framework development. the site can be used and the potential development value. Listing of the 7.20 The various phases of development reflect land ownership. Land owner prison buildings has occurred during the framework preparation and more financial pressures and operational requirements shouldn’t cause any detailed analysis of the reuse of these building and adjoining development problems with development delivery. is required to provide greater certainty and reduced risk for this part of the 7.21 The Council’s role in realising the framework proposals may only extend site. As highlighted earlier in this Framework, an Options Study for the only to planning management through their role as local planning Quadrangle is being prepared and will be appended to this report, this will authority. The Central Northallerton Framework provides interested include further appraisal, soft market testing and viability analysis. parties with clear guidance on suitable land uses and development 7.18 High level development appraisals indicates that the preferred option is parameters. broadly viable, but potential development constraints might have an 7.22 The sole part of the site where further input and support from the Council adverse impact on development viability and the capacity of development might be required focuses on the quadrant of listed prison buildings. to make planning contributions. In the event that potential constraints Given the potential constraints these buildings pose and the limited add to development cost, the Council may need to consider planning potential within this framework to give detailed consideration to suitable contributions through more detailed viability analysis. These points will be conversion and reuse of these buildings, it would be appropriate for the addressed in the Options Study for the Quadrangle. Council to undertake additional soft market testing, options analysis and
economic viability analysis for more detailed development proposals. This additional study would help to further de-risk this element of the site for prospective developers. It would identify suitable potential uses and occupiers for the listed buildings and in the event that there is a potential
Page 42 Central Northallerton Masterplan viability gap for redevelopment of this part of the site, this study could also identify potential grant funding.
7.23 Developers generally favour responsibility for infrastructure delivery associated with their own development projects. Detailed design and planning for infrastructure works, including off-site highway improvements can be undertaken by the developer of any given phase and controlled by imposition of conditions or legal agreement as part of future planning permission.
7.24 The critical path to development is as follows:
Item Action Responsibility 1. Finalise and adopt the Central Hambleton DC Northallerton Development & Design Framework 2. Prison Quadrangle options analysis Hambleton DC 3. Site marketing & disposal Landowners 4. Site design leading to preparation, Developer with submission and negotiation of planning support from applications Hambleton DC 5. Leading to start on site Developer
Page 43 Central Northallerton Masterplan ADDENDUM I - BASELINE REPORT
Page 44 Central Northallerton Masterplan ADDENDUM II - QUADRANGLE OPTIONS STUDY (TO BE APPENDED ONCE COMPLETE)
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