Application DC/063280 Reference DC/063281 Location: Meadow Mill, Water Street, , SK1 2BX PROPOSAL: Full and Listed building consent for: Conversion of part vacant Grade II listed former mill building into a mixed use development; comprising of 213 apartments on upper floors and 2208sqm of D2 (Leisure Use) and 200sqm A3 (Restaurant) use at ground floor level. Works include refurbishment and repair of the building, removal of existing roof and replacement of additional 7th floor in addition to upper floor extensions of the buildings northern and southern wings to accommodate additional 6th floors. Works to also include alterations to existing access, associated landscaping and creation of 173 car parking spaces within the buildings grounds. (Amended Scheme)

Type Of DC/063280 Full Application Application: DC/063281 Listed Building Consent Registration Date: Expiry Date: Case Officer: Mr Steven Kirkham Applicant: William George Homes Agent: As per applicant

DELEGATION/COMMITTEE STATUS

PHRC decision. Residential Development in excess of 100 dwellings. Application referred to Central Area Committee for comment/recommendation.

PROPOSED DEVELOPMENT

This is a joint report to cover Full Planning Permission and Listed Building Consent that is being sought for the extension and conversion of Meadow Mill into a mixed use development of residential apartments and ground floor leisure space with associated landscaping, access and car parking works.

The proposals represent an amendment to the original submission, this has resulted in changes to the upper floor extensions and a reduction from 217 apartments to 213. This was required in the interests of the conservation of the heritage asset.

The proposals include a comprehensive refurbishment and repair of the existing mill building. This would include the replacement of the existing roof with an additional 7th floor extension in addition to upper floor extension to the buildings northern and southern wings to accommodate additional 6th floors. These extensions would be constructed from a seamed Zinc cladding system.

The residential accommodation as proposed would comprise of:

 120 x 1 bed apartments (sizes range from 26sqm studio to 39sqm approx.)  77 x 2 bed apartments (54sqm – 75sqm)  16 x 3 bed apartments (99sqm- 108sqm)  11 affordable apartments (5x1bed (38sqm) & 6 x 2 bed (69sqm))  Shared residential leisure space within the Engine Room.

A new vehicular access would be provided off Water Street to allow for a separation between residential (frontage) and commercial (rear) traffic to be achieved. A total of 173 parking spaces would be provided within a landscaped car park to the front of the building. 31 of which would be allocated for disabled persons. Cycle parking for up to 226 cycles would be provided within the building.

The ground floor of the building would accommodate 2208sqm of D2 (Leisure Use) and 200sqm A3 (Restaurant). This would represent a consolidation of existing leisure uses located within the building.

Town Centre uses (sqm):

USE CURRENT PROPOSED COMMENT A1 Retail 2732 0 Five existing retail uses. Four are furniture and one is electrical goods A3 174 200 One café/ takeaway use D2 2049 2208 Five existing users. Three are martial arts and two are fitness/dance. TOTAL 4955 2408

To meet with the local and national validation requirement’s the application has been accompanied with the following reports:

Planning, Design and Access Statement Affordable Housing Statement Arboricultural Assessment Crime Impact Statement Ecological Report Energy Statement Flood Risk Assessment Heritage Assessment Landscape Appraisal Noise Assessment Sustainability Assessment Transport Assessment Travel plan Waste Management plan

Full Plans Package includes a Site Layout Plan, existing and proposed elevations and floor plans, photographic montages.

The site falls below relevant thresholds and would not constitute EIA development.

SITE AND SURROUNDINGS

The application site comprises of the existing Meadow Mill building, it occupies a parcel of land measuring approximately 1.175ha in area. It is situated to the north of Water Street and is located within the Portwood area of the town, approximately 1km to the northeast of Stockport town centre.

The site is occupied by the existing Meadow Mill, a seven storey brick built mill that fronts onto Water Street. It is has an elongated form comprising of some 17,000 square meters. It consists of a main seven storey block, with two wings which have five floors. It has two prominent towers to the centre, in addition the building retains in chimney and there is separate engine house (with working boiler) located to the rear of the building. The building is presently used for a broad spectrum of commercial, employment (A1, A3, B1, B2 & B8) and leisure (D2) uses. Occupancy levels for the building is currently in the region of 40% of the floorspace.

To the south of the main building there is a tarmac and rough stone car park and to the north there is a tarmac surfaced service yard. Access to both of these areas is taken from Water Street to the west of the building.

To the north of the site there is Meadow Industrial Estate that consists of a number of small business units, these are accessed from the shared service yard to the Mill. A roundabout on Water Street provides access to a Tesco Superstore, the petrol station and car park to which are overlooked by the Mill building.

Between the mill car park and Water Street there is wide grass verge that has a gentle slope at the south west corner but gradually steepens where Water Street meets Tiviot Way. Levels surrounding the mill building are fairly consistent but there is a gradual rise across the frontage of the building whereby the eastern wing (Tiviot Way end) has a ramped access. Immediately to the north of the mill building, the River Tame passes under a bridge on Tiviot Way and then around the northern side of Meadow Industrial Estate. Access to the TransPennine Trail and Reddish Vale Local Nature Reserve can also be taken from this point.

Listing Description

Meadow Mill Grade II listed since 10th March 1975.

Built in the 1870's. Front elevation of 7 storeys, including basement. Red brick, with basement in blue brick below stone band. 1st and 2nd floors are arcaded, with bands in blue brick at impost height. 41 bays. Top floor has paired windows with round arched heads and column mullions, stone band at sills. Above this storey is stone parapet and brick arcaded bracket cornice. Centre 4 bays have stone dressing to windows, and outer 2 break forward. 3rd floor has round window and round arched arcade with keystone. 1st and 2nd floor arcades round-headed, stone, carved capitals. Upper 2 floors have 1 window in stone surround. Carved panel between storeys. Centre ends in 2 turrets with ornamental iron ridge, and flag pole. Tall wing of one storey to rear and factory chimney. 1-storey gatehouse.

Interior: Structure of cast iron lengthwise and crosswise beams with brick arches. A good example of it's period.

POLICY BACKGROUND

Section 38(6) of the Planning and Compulsory Purchase Act 2004 requires applications/appeals to be determined in accordance with the Statutory Development Plan unless material considerations indicate otherwise.

The Statutory Development Plan includes:-

 Policies set out in the Stockport Unitary Development Plan Review (SUDP) adopted 31st May 2006 which have been saved by direction under paragraph 1(3) of Schedule 8 to the Planning and Compulsory Purchase Act 2004; &

 Policies set out in the Stockport Local Development Framework Core Strategy Development Plan Document (CS) adopted 17th March 2011.

N.B. Due weight should be given to relevant SUDP and CS policies according to their degree of consistency with the National Planning Policy Framework (‘NPPF’) issued on 27th March 2012 (the closer the policies in the plan to the policies in the NPPF, the greater the weight that may be given); and how the policies are expected to be applied is outlined within the Planning Practice Guidance (‘PPG’) launched on 6th March 2014.

Saved UDP review The site is allocated as lying in the Town Centre (Stockport’s M60 Gateway) on the Proposals Map of the UDP Review. The following policies are therefore applicable:

TCG4.6 – Water Street; PSD1.2 – Large Scale Existing Retail Sites; CDH1.5 – Flat Conversions; MW1.5 – Control of Waste from Development; EP1.7 – Development and Flood Risk; EP1.10 – Aircraft Noise;

LDF Core Strategy/Development Management policies

CS1 Overarching Principles: Sustainable Development – Addressing Inequalities and Climate Change SD-3 Delivering the Energy Opportunities Plans – New Development SD-6 Adapting to the Impacts of Climate Change CS2 Housing Provision CS3 Mix of Housing CS4 Distribution of Housing CS8 Safeguarding and Improving the Environment H-1 Design of Residential Development AED-6 ‘Employment Sites Outside Protected Employment Areas’ SIE-1 Quality Places SIE-2 Provision of Recreation and Amenity Open Space in New Developments SIE-3 Protecting, Safeguarding and Enhancing the Environment CS9 Transport & Development T-1 Transport & Development T-2 Parking in Developments T-3 Safety & Capacity on the Highway Network

National Planning Policy Framework Conformity

The Planning Advisory Services’ National Planning Policy Framework Compatibility Self-Assessment Checklist has been undertaken on Stockport’s adopted Core Strategy. This document assesses the conformity of Stockport’s adopted Core Strategy with the more recently published NPPF and takes account of saved policies from the Unitary Development Plan where applicable. No significant differences were identified.

Supplementary Planning Guidance

Supplementary Planning Guidance (Saved SPG’s & SPD’s) does not form part of the Statutory Development Plan; nevertheless it does provide non-statutory Council approved guidance that is a material consideration when determining planning applications. The Design of Residential Development; Town Centre Housing; Sustainable Transport; Affordable Housing SPG; Recreational Open Space Provision & Commuted Sums SPG; Transport & Highways in Residential Areas SPD

National Planning Policy Framework

Paragraph 6 states: “The purpose of the planning system is to contribute to the achievement of sustainable development”.

Paragraph 7 states: “There are three dimensions to sustainable development: economic, social and environmental”.

Paragraph 11 states: “Planning law requires that applications for planning permission must be determined in accordance with the development plan unless material considerations indicate otherwise”.

Paragraph 13 states: “The National Planning Policy Framework constitutes guidance for local planning authorities and decision-takers both in drawing up plans and as a material consideration in determining applications”

Paragraph 14 states: “At the heart of the National Planning Policy Framework is a presumption in favour of sustainable development, which should be seen as a golden thread running through both plan-making and decision-taking”.

For decision-taking this means (unless material considerations indicate otherwise):

 approving development proposals that accord with the development plan without delay; and  where the development plan is absent, silent or relevant policies are out-of-date, granting permission unless: i) any adverse impacts of doing so would significantly and demonstrably outweigh the benefits, when assessed against the policies in this Framework taken as a whole; or ii) specific policies in this Framework indicate development should be restricted”.

Paragraph 17 states: “Within the overarching roles that the planning system ought to play, a set of core land-use planning principles should underpin both plan-making and decision-taking. These 12 principles are that planning should:

 be genuinely plan-led, empowering local people to shape their surroundings, with succinct local and neighbourhood plans setting out a positive vision for the future of the area. Plans should be kept up-to-date, and be based on joint working and co-operation to address larger than local issues. They should provide a practical framework within which decisions on planning applications can be made with a high degree of predictability and efficiency;

 not simply be about scrutiny, but instead be a creative exercise in finding ways to enhance and improve the places in which people live their lives;

 proactively drive and support sustainable economic development to deliver the homes, business and industrial units, infrastructure and thriving local places that the country needs. Every effort should be made objectively to identify and then meet the housing, business and other development needs of an area, and respond positively to wider opportunities for growth. Plans should take account of market signals, such as land prices and housing affordability, and set out a clear strategy for allocating sufficient land which is suitable for development in their area, taking account of the needs of the residential and business communities;

 always seek to secure high quality design and a good standard of amenity for all existing and future occupants of land and buildings;

 take account of the different roles and character of different areas, promoting the vitality of our main urban areas, protecting the Green Belts around them, recognising the intrinsic character and beauty of the countryside and supporting thriving rural communities within it;

 support the transition to a low carbon future in a changing climate, taking full account of flood risk and coastal change, and encourage the reuse of existing resources, including conversion of existing buildings, and encourage the use of renewable resources (for example, by the development of renewable energy);

 contribute to conserving and enhancing the natural environment and reducing pollution. Allocations of land for development should prefer land of lesser environmental value, where consistent with other policies in this Framework;

 encourage the effective use of land by reusing land that has been previously developed (brownfield land), provided that it is not of high environmental value;

 promote mixed use developments, and encourage multiple benefits from the use of land in urban and rural areas, recognising that some open land can perform many functions (such as for wildlife, recreation, flood risk mitigation, carbon storage, or food production);

 conserve heritage assets in a manner appropriate to their significance, so that they can be enjoyed for their contribution to the quality of life of this and future generations;  actively manage patterns of growth to make the fullest possible use of public transport, walking and cycling, and focus significant development in locations which are or can be made sustainable; and

 take account of and support local strategies to improve health, social and cultural wellbeing for all, and deliver sufficient community and cultural facilities and services to meet local needs”.

Paragraph 187 states “Local planning authorities should look for solutions rather than problems, and decision-takers at every level should seek to approve applications for sustainable development where possible. Local planning authorities should work proactively with applicants to secure developments that improve the economic, social and environmental conditions of the area”.

Paragraph 196 states “The planning system is plan-led. Planning law requires that applications for planning permission must be determined in accordance with the development plan, unless material considerations indicate otherwise. This Framework is a material consideration in planning decisions”.

Paragraph 197 states “In assessing and determining development proposals, local planning authorities should apply the presumption in favour of sustainable development”.

Paragraph 215 states “………..due weight should be given to relevant policies in existing plans according to their degree of consistency with this framework (the closer the policies in the plan to the policies in the Framework, the greater the weight that may be given)”.

RELEVANT PLANNING HISTORY

No previous applications of relevance to the proposals.

NEIGHBOUR'S VIEWS

The owner/occupiers of neighbouring properties (35 in total) have been notified by letter on two occasions to reflect the initial submission and subsequent amendments. In addition the application was advertised as a Major Development of Public Interest by way of site and press notices.

No letters of representation have been received.

CONSULTEE RESPONSES

Summarised as follows:

Arboricultural Officer:- The site currently has a poor level of vegetation. A full tree survey has been supplied as part of the full planning application to show the condition and amenity levels of the remaining trees in or around the red edge and where applicable, this is a true and accurate account. The development will not require the removal of trees to implement the design, No objection subject to recommended conditions securing landscaping (preference for native species) this will enhance the tree cover and overall biodiversity value of the site.

Conservation Officer:-

No objections, comments that the design of the scheme has been developed in consultation with the developer/architect, it is considered that the resultant scale and impact of the current proposals upon the architectural interest, historic fabric and setting of the mill is appropriate. Key architectural elements of the building such as the chimney, ornamental turrets and engine house will be retained and restored and a maintenance regime will be integrated into the future management arrangements for the complex to ensure their future preservation. Conditions are recommended with regard to the approval of all materials and repairs. Also request further surveys are undertaken of areas which are currently not accessible.

Contaminated Land Officer:- No objections, the proposal would not involve the breaking of ground and existing landscaping area will be retained/enhanced. Recommend standard informative (CON2) is applied.

Drainage LLFA:- No objections subject to recommended conditions relating to separate foul and surface drainage systems. Surface water from the car park should also be reduced by 50% including an allowance for climate change of 40%. Infiltration techniques to be investigated and parking areas drained through an interceptor.

Design & Security:- No objections subject to the recommendation of the Crime Impact Statement being conditioned.

Environment Agency:- No objections subject to conditioning the application of the mitigation measures as set out in the Flood Risk Assessment (FRA) from Ironside Farrar Limited (ref 30207/SRG May 2016).

Greater Manchester Archaeological Advisory Service:- No comments

Highways:- The layout has been amended to reflect comments. No objections subject to recommended conditions (Construction Method Statement, Highway Condition Survey, Submission of Highway construction details, Provision of Parking, Restriction on Commercial Use, Off-site improvements to Tiviot Way Bridge and Wayfinding signage)

National Grid: - No objections/comments.

Nature Development:- The site itself has no nature conservation designations, legal or otherwise. Reddish Vale Local Nature Reserve is located on the opposite side of the Tiviot way, approximately 75m northeast of the application area.

Sufficient survey effort in relation to bats has been submitted with the current application and no evidence of rooting bats was recorded.

Recommend conditions requiring a Construction Environmental Management Plan (CEMP) and full landscaping details are applied to any approval.

Plan Policy (Employment, Energy, Housing, Open Space, Retail):- Employment- Saved UDPR Review (2006) Policy TCG.4.4 refers to the potential for residential development on the upper floors of Meadow Mill and in the absence of mentioning specific floors for residential, this could be taken to read every floor above the ground floor. Also much of the Mill is currently unoccupied and TCG4.4 refers to the Importance that residential uses could play in providing valuable accommodation close to the Town Centre. The policy aims to ensure the protection of this key landmark building.

Energy- Submitted energy statement is fully policy compliant.

Housing- Saved UDP Policy TCG4.4 ‘Land North of Water Street’ supports the redevelopment of the upper floors of Meadow Mill for residential development as it can provide valuable accommodation close to the town centre. Furthermore Core Strategy policy CS4 ‘Distribution of Housing’ sets out that up to 50% of the housing to be delivered in Stockport should be in the Central Housing Area, the proposal to develop flats in this location is supported by Policy CS3 ‘Mix of Housing’ and the site will help to deliver over 200 units on a brownfield location, helping to achieve the targets set out in Policy CS2 ‘Housing Provision’. Consequently the redevelopment of the building in part for residential purposes is welcomed.

The proposal for 5% affordable provision is at the bottom end of the scale it has been justified in line with policy.

Open Space- having regard to the limited curtilage and associated parking and access requirements it is recommended that POS requirements are met off-site.

Retail- No objections to the threshold of D2 use and A3 uses within the amended description. Recommend conditions restricting floor space. Pollution Control:- A noise report has been undertaken and has assessed that the development can meet internal noise levels, assessed maximum noise levels for plant from the ground floor use and the impact of the residential causing blight to nearby business. The report advises that internal noise levels can be met but there will need to be an upgraded window specification and some form of ventilation system to meet internal noise levels. Recommend Conditions that secure this. Public Health:- No objections promote the use of conditions to encourage sustainable forms of travel on conjunction with the Highways Officers recommendations.

United Utilities:- No objections raised to the proposals subject to drainage details being conditioned.

ANALYSIS

Principle of Development:

Meadow Mill is an iconic building that occupies a strategic location within the Portwood area to the northeast of Stockport Town Centre. The allocation on the Saved UDP Review map is as a M60 Gateway site. The presiding policy is Saved UDP Policy TCG4.4 ‘Land North of Water Street’.

Policy TCG4.4 identifies that the area could support a mixture of employment, residential and leisure uses. The policy explicitly supports the redevelopment of the upper floors of Meadow Mill for residential purposes, it recognises the potential for the building to provide valuable accommodation close to the town centre. It identifies a series of criteria (9) that developments need to satisfy. These can generally be categorised as issues that relate to; Land Use, Transport/Highways and Design matters. The policy states that in considering development schemes, the following should satisfied:

(i) The development is sympathetic to neighbouring land uses and takes account of the needs of any existing uses which may remain within the area; (ii) Safe pedestrian links are provided, or existing ones enhanced, physically linking any development to the surrounding area and particularly the Town Centre; (iii) Appropriate vehicular access is located, designed and constructed to the satisfaction of the Council; (iv) Satisfactory parking provision is provided, both for vehicular users and cyclists; (v) Opportunities to encourage the use of public transport as a means of access are taken; (vi) The scheme is of a high standard of design, reflecting its prominent position adjacent to the M60; (vii) A satisfactory landscape scheme is submitted, including boundary treatment; (viii) The development is sympathetic to the river valley location and adjacent Green Belt area; (ix) The development satisfies all other relevant UDP policies.

These matters will be addressed individually through the report. In terms of land use consideration then it is established through Policy TCG4.4 that the (part) residential conversion of Meadow Mill would be acceptable. This would also compliment policy objectives laid out within the Core Strategy.

Policy CS4 ‘Distribution of Housing’, sets out that up to 50% of the housing to be delivered in Stockport should be in the Central Housing Area, the proposal to develop apartments in this location is supported by the principles of Policy CS3 ‘Mix of Housing’ which also promotes high density development. Policy CS4 aspires to deliver 2000 dwellings within Town Centre areas, although this is defined as areas TCG2 & TCG3 within central Stockport. Notwithstanding this, the proposals clearly represent an opportunity to secure a sizable contribution towards housing targets on a brownfield location, which accords with local target of 90% of dwellings on PDL land required by policy CSP2 ‘Housing Provision’. Subject to safeguards of relevant conditions (to be identified later within the report) the interface between the proposed uses and existing employment activities within the area is considered to be acceptable. Consequently the redevelopment of the building in part for residential purposes is supported.

Employment Uses: The Mill at present supports a hybrid mix of uses which span traditional employment (engineering) to leisure and retail. The overall occupancy level of the Mill is below 50% of the floorspace, this is generally confined to the lower floors with the mid to upper floors being almost completely vacant. This pattern of occupancy is fairly typical to that of Mill sites with a multiple occupancy, in this instance it is also a reflection on the constrained access and service arrangements to the upper floors in addition to the failing roof.

The applicant form states that there are about 60 FTE jobs currently within Meadow Mill. Policy AED-6 recognises the need to protect employment sites outside of designated employment areas. The developer’s efforts are focussed on the relocation of these tenants without any loss of jobs, where possible, existing leisure uses would be retained within the ground floor that would allocated for up to 2,208sqm of D2 leisure and 200sqm of Restaurant space. The applicant has also confirmed that several tenants within more traditional employment sectors have already secured alternate premises with the Borough, whilst not exhaustive this includes skilled engineering firms MI Fabrications (Moved to Hallam Mill) & Sydney Brown Engineering (Edgeley), Mystic Interiors and Normandy Furnishings will also be relocating to Pear Mill. In recognition of policy TCG4.4’s acceptance of a residential use for the building, consideration for any mixed use development must have regard to matters of overall compatibility. With regard to employment, the retention of any traditional B1, B2 & B8 uses could result in amenity conflicts arising from the associated processes. The allocation of the ground floor to leisure uses is considered to be more complimentary to a residential use, this also falls within the scope of Policy TCG4.4 which identifies the site as an area for leisure opportunities.

At present there is 4,955m² of Town Centre (leisure/retail) use operating from various floors of the mill. The proposals would see D2 and small element of A3 use confined to the Ground Floor of the building only. The proposals equate to a significant reduction of 51% (2,747m²) of Town Centre uses that exists at the site at present, this would include the complete removal of all A1 retail from the site. The increase in A3 use at the site would equate to an additional 40m² which is below the threshold requirement of a sequential test or impact assessment. In order to restrict impact upon the Town Centre the D2 and A3 floorspace would be conditioned. The consolidation of these uses is considered to be compatible with Core Strategy Policies CS5 and CS6 and relevant paragraphs of the NPPF, as such it is not considered that the proposals would impact adversely on the vitality and viability of Stockport Town Centre.

To conclude the general principle of housing is accepted by SUDP policy TCG4.4. The consolidation of leisure uses to the ground floor of the site with residential use to the upper floors is considered to be an appropriate use which would not conflict with criteria (i) of Policy TCG4.4 and present an opportunity to regenerate a key building within the identified M60 Regeneration corridor.

Heritage and Listed Building Consent considerations:

Meadow Mill is a Grade II listed former textile mill that was constructed in c 1880, it occupies a site at a strategic gateway location to the town centre. The building consist of two 7 storey wings to either side of a projecting central entrance bay and features a prominent chimney and ornamental engine house at the rear together with 2 large turrets at roof level, to the rear of the building there are two 5 storey wings. The building is in fair condition but there is evidence of roof decay and related rainwater penetration particularly on the upper floors of east wing. Whilst the cast iron columns and brick arches of the original structure remain largely visible internally, no textile related machinery survives within the mill.

Section 12 of the NPPF relates to Conserving and enhancing the historic environment. Paragraph 131 provides guidance on the desirability of enhancing the significance of heritage asset. Specifically the potential for ‘new development’ to make a ‘positive contribution to local character and distinctiveness’.

A detailed assessment of the heritage significance of the mill has been undertaken to the satisfaction of the Conservation Officer. This identified all the key heritage components of the building. Traditionally the building would have had open-plan floor plates, this is still a character of the upper floor but as a general rule lower floors have been subdivided with a series of partitions. The residential accommodation would require new partitions to be installed to create the individual residential units which would be set either side of a central access corridor which would allow exposure of cast-iron support beams and arched bricked ceiling to the floors. This would result in a partial loss of character although the more open plan nature of the ground floor leisure uses would allow for a retention/appreciation of the original layout.

The most significant intervention relates to the replacement of the roof to the main building, and rear wings, in lieu of extensions to accommodate further residential units. The design of these elements have been revisited, the subsequent amendments have resulted in a reduction to the scale of the extensions on the rear wings so that they have a consistent form to that of the upper floor. To reduce the overall impact, these extensions would be setback from the buildings existing decorative parapet. The approach is very similar to that taken with other major mill conversions elsewhere within the Borough, it is considered that the overall design and scale of proposals is suitably restrained in order to avoid any harmful visual impact upon the significance of the mill. A more interesting aspect of the proposal is the conversion of the former engine house and rope race into a communal leisure space for residents of the development. This will allow several heritage elements to be exhibited and appreciated in perpetuity.

The Conservation Officer comments that the design of the scheme has been developed in consultation with the developer/architect and it is considered that the resultant scale and impact of the current proposals upon the architectural interest, historic fabric and setting of the mill is appropriate. The conversion works to the buildings constraints and key architectural elements of the building such as the chimney, ornamental turrets and engine house will be retained and restored and a maintenance regime will be integrated into the future management arrangements for the complex to ensure their future preservation. Notwithstanding this a number of conditions would be required, these would principally cover all external materials as well as details and methods of repair to the buildings fabric. No objections are raised and it is recommended that Listed Building Consent should be granted conditional approval.

There is no overriding ‘substantial’ harm to the Listed Building. Whilst the proposed interventions associated with the new extensions and internal partitioning will have a direct impact on the historical significance, it will not lead to any harm which is considered to outweigh the public benefit of securing the long-term retention of the building by bringing it into full use, and preventing any further decline, as outlined within the NPPF.

It is therefore considered that the proposal will sustain and enhance the heritage asset, as prescribed by paragraph 131 of the NPPF, for future generations. The applicant has demonstrated that the use of the building for residential purposes is viable and will ensure that the historic fabric and special architectural elements of interest are retained. There is no substantial harm or total loss of the significance of the heritage asset and the harm that does arise is outweighed by the public benefit of bringing this important building back into use and so would accord with Core Strategy policies CS8 and SIE-3 and paragraphs 131-134 of the NPPF

Access and Highway Safety

Accessibility: Core Strategy Policy CS3 relates to the efficient use of Housing Land and Accessibility. The location of the site is within an accessible central location this reflects on its accessibility score of 70, this is well above the minimum score of 45 that is applied to apartments. It is noted that the site is not within a particularly convenient walking distance of (1.6km) and bus Station (1.9km) it is however, within a reasonable walking distance of a large food store, the Peel Centre and Stockport Town Centre, a number of primary schools and a bus stop that is served by the town centre Metroshuttle bus (Portwood is also on the primary bus route of many services). In addition, the site is within reasonable cycling distance of much of central Stockport, there are various cycle routes and facilities within the vicinity of the site including the Trans Pennine Trail.

To promote sustainable travel modes the Highways Officer recommends improvements to pedestrian and cycle paths within the vicinity of the site. These matters would be secured by a condition and would include:

 Provision of a pedestrian link from the southern corner of the car park to Water Street and a uncontrolled pedestrian crossing (dropped kerbs with tactile paving), to allow pedestrians to cross to the pedestrian ramp to the Tesco store;  Provision of a pedestrian / cycle link between the north-eastern end of the car park and Tiviot Way;  Widening the existing footway on the Western side of Tiviot Way between the Water Street junction and bridge over the River Tame so as to form a 3m footway / cycleway;  Raising the height of the bridge parapet on the west side of the bridge over the Tame so as to enable the existing footway over the bridge to be used by cyclists;  Provision of wayfinding signage for pedestrians and cyclists in the vicinity of the site.

The above matters would not only address the requirements of polices T1 and T3 but also point ii of Policy TCG4.4.

Site Access: Access is presently taken from the north eastern corner of the site onto Water Street. This is shared with adjacent businesses within Meadow Business Park that is located to the rear of the Mill building. In order to separate commercial and servicing areas from resident, and visitor traffic, a new priority junction is proposed onto Water Street. This would be located approximately 22m from its present location and would see the closure of the existing access that currently serves the front car park of the building. The existing car park would then be remodelled to provide 173 parking spaces 31 of which (18%) would be allocated for disabled persons. Provision would be made for 226 cycle spaces within the mill building. The apartments and commercial units are proposed to be separately serviced from the existing service yard to the rear of the Mill.

Traffic Impact: Traffic surveys carried out as part of the Transport Assessment (TA) process outline that the existing uses generate approx. 33 vehicle movements during the AM peak and 111 during the PM peak although this does not include vehicle movements that could be generated by the unoccupied floor space. If the unoccupied floor space was reoccupied for B2 use, the TA estimates that the mill would generate 105 vehicle movements during the AM peak and 163 during the PM peak (based on a TRICS assessment of the B2 use). If the unoccupied floor space was reoccupied for B8 use, however, the TA estimates that the mill would generate 57 vehicle movements during the AM peak and 127 during the PM peak (again based on a TRICS assessment).

Conversion of the mill as proposed would result in the mill generating 89 vehicle movements during the AM peak and 167 during the PM peak. As such, although the proposal will generate significantly more vehicle movements than the mill presently generates (an additional 56 additional movements during both the AM and PM peak), it would generate a comparable number of units if the mill was fully occupied within a B2 or B8 use.

The Highways Engineer envisages that the proposal is likely to generate 10-20 additional vehicle movements at peak hour, compared with a fall-back scenario of the Mill being fully occupied, this equates to an additional vehicle every 3-6 minutes on average. Such an increase would not have a material impact on the local highway network that would warrant mitigation measures, such as offsite highway improvements. However, as parts of the local highway network are already at or close to capacity, any increase in vehicle movements, would not be desirable and therefore it is important for measures to be implement to discourage car use to / from the site.

Therefore in addition to conditions securing the provision of parking and a travel plan a number of offsite improvements would are proposed including a widening of the footway of Tiviot way (to accommodate cyclists) a higher parapet to the River Tame Bridge and provision of an uncontrolled pedestrian crossing on Water Street

Parking: Parking is presently provided within the site for approx. 130 cars within an unmarked car park to the front of the Mill. As part of the proposals, the existing car park will be amended and improved (including complete resurfacing, parking spaces being delineated, provision of pedestrian access routes and comprehensive new surfacing and landscaping) cumulatively this will provide a total of 172 parking spaces which equates to approximately 31% of the maximum demand. The TA, however, outlines that this level of parking would be expected to meet demand, noting that the commercial uses would be expected to generate a maximum parking demand of 66 spaces, car ownership levels in the area are low (approx. 40%) and the site’s accessibility would be such that occupiers would be less likely to own a car. In addition, the Highways Engineer agrees with the TA that identifies that TROs / parking restrictions are in force within the vicinity of the site, this would ensure that overspill parking could not take place in locations that would affect the safe operation of the local highway network.

In considering the parking requirements it is note that the potential occupiers of the apartments would be aware of the level of parking proposed when deciding to purchase / rent an apartment within the complex. The car parking within the site would be managed to ensure its affective operation and the site’s location and accessibility, together with the provision of robust travel plan measures, should ensure that occupiers do not require cars and that parking demand is therefore reduced. This approach has been supported by the Highways Officer.

Servicing/Waste Management: The apartments and commercial units are proposed to be serviced from the existing service yards to the rear of the mill. Within the Listed Building there will be dedicated chutes from the upper floors that transfer waste to ground floor bin stores. Occupants will be provided with colour coded bags which will cater for different types of waste, a management company will sort the material where it will be transferred to the external boiler house for storage/collection. It is considered that these arrangements ensure maximum ease and efficiently for residents and ensure that waste is contained within a specified area that encourages recycling.

To conclude on highways matters, the access and parking arrangements have been assessed as being acceptable. The site is within a sustainable location which benefits from immediate access to services and transport options. There is adequate capacity on the local highway network to accommodate the use when considering the fall-back of the present use. As such in the absence of any demonstrable adverse impacts, and subject to recommended conditions, the development is considered to adhere to the provisions of policies CS9, T-1, T-2 and T-3 and points ii, iii, iv, v of SUDP policy TCG4.4.

Design, Layout & Visual Amenity

Policy SIE-1 of the Core Strategy stresses the importance of developments achieving the highest standard of design. This is reiterated within the adopted SPD’s for the design of residential development and Town Centre housing SPD’s.

The proposals largely relate to the change of use of the building that would be facilitated by internal alterations. The design considerations are limited to that of the building’s roof extensions and external landscaping work, the latter of which is limited to works across the buildings frontage owing to constraints associated with the sites boundary. The Design and Access Statement identifies that the proposed uses will respect the mill and will retain and exploit the external appearance and internal features. Key elements include:

 The positions of existing windows and door openings will be respected and retained, where possible. Removal of intrusive external roller shutters;  Existing vertical spaces utilised as routes for lifts and staircases rather than cutting through existing floors or introducing new external vertical circulation.  The scheme will retain and emphasise the brick vaulting  The remaining original internal features will be retained including columns, original doors and fire escapes.  Improved landscaped setting which can be seen from the M60 to emphasise the setting of the mill as a high quality gateway feature.  Retention of the engine house as a two storey space emphasising the unique roof structure and will become a publicly accessible space allowing its character to be seen and enjoyed.  The new layout will provide corridors which will allow the scale of each floor to be understood retaining the feel of a mill.  Full disabled access provided across the mill

The extensions would be setback behind the buildings parapet, the front extension would project to a height of 2.1m above the building, the extensions on the rear wings by 2.4m. The materials would need to be conditioned but it is suggested that they would be constructed from a zinc covering. The elevations would have a regular window arrangement that helps to lighten the overall appearance. The design and form of the extensions are respectful to the historical form of the building. Their scale is subordinate to the host complex and the design and materials would complement the appearance of the building allowing for its sensitive conversion. As such, their addition would not be out of character with the building and the works are considered to meet the design/environmental requirements expected by policies SIE-1 & SIE-3 and point vi od SUDP policy TCG4.4.

Landscape and ecology The urbanised nature and lack of natural habitats on site contribute to an overall low ecological value, this is supported by the assessment undertaken by the ecologist who also acknowledges that sufficient survey in relation to bats has been undertaken, with no evidence of rooting bats. Owing to prominence of hardsurfacing existing trees and vegetation is limited to the sites boundaries to Water Street and Teviot Way. These trees are prominent and have amenity value as individuals. The indicative Landscape Masterplan has been submitted as part of the proposal and shows that there will be a significant gain in tree numbers as a result of the landscaping proposals. In the main this will see increased tree planting along the road frontages and throughout the proposed car park. The soft landscaping would be complemented by hard landscaping comprising of high quality materials, furniture and lighting appropriate to the setting. Further information would be required regarding species to be planted, the materials to be used and the precise design of some of the landscape features however this can be controlled through the use of suitably worded conditions. Subject to suitable planting and nature conservation enhancements there would be a positive impact from the scheme in terms of Biodiversity and Landscaping value and it will make a positive contribution to the Boroughs Green Infrastructure Network. The positive landscape impact can be clearly seen against the comparison to the existing site conditions which is dominated by hard surfaces. It is considered that the proposed development is acceptable in terms of its potential impact on nature conservation and that it is in accordance with polices CS8 and SIE-3. Public Open Space.

The policy requirements of Dev Man Policy SIE 2 from the Core Strategy and the Recreational Open Space Provision SPG, indicates that occupancy levels of 100 or more are expected to provide 1.7 ha per 1,000 population for formal recreation and 0.7 ha per 1,000 population for childrens’ play and casual recreation. Given the proposed housing numbers and types, the population capacity would be 547. This policy requires as much as possible of the open space to be provided within or adjacent the new development. Originally the application made provision for an onsite Children’s play area. Following an assessment it was considered unsuited for this to be accommodated on the site, the limited curtilage provides a significant constraint which can give rise to conflict arising with access and service requirements. As such the applicant was advised to amend the scheme whereby Children’s recreational and formal recreation requirements should be dealt with offsite. Based on the anticipated population this would equate to a contribution of approximately £347,910.50 which will be secured within a section 106. This is considered to satisfy the requirements of Core Strategy policy SIE2. Affordable Housing

Core Strategy Policy H3 ‘Affordable Housing’ sets out the Councils requirements on new residential development. The site falls between the Town Centre and Lancashire hill which is recognised as a 5-15% area. The applicant has set out a case for delivery of affordable housing at the lower end of the scale (5%) which would equate to 11 units (8 shared ownership and 3 social rent). This is considered reasonable given the associated costs of redeveloping a heritage asset and aspirations for securing a long term viable use of the site. As such the proposal accords with the provisions of H3 (Affordable Housing), as well as CS2 (Housing Provision), CS3 (Mix of Housing), CS4 (Distribution of Housing) and H2 (Housing Phasing). Residential Amenity

The mill is located within a mixed uses area where it does not neighbour any existing residential uses. The application of separation distances is therefore not applicable in terms of safeguarding levels of existing amenity. The proposed layout would appear to accord with the CS policy SIE-1, saved UDP policy CHD1.5 and the provisions of the SPD ‘Design of Residential Development’ in terms of overall levels of privacy and overlooking.

However, in respect to private amenity space only the upper floor apartments would be served with an area of private amenity space, this would be in the form of private balconies located behind the buildings parapet. The SPD acknowledges that in exceptional circumstances the ridged application of prescribed standards may not be necessary. In the applicants circumstances weight is attached to the buildings constraints, reuse of a listed building and delivery of housing within a highly sustainable area.

Recognising the importance of the heritage asset it would not be desirable to address amenity shortcomings by the introduction of balconies to the building facades, ultimately such an intervention would detract from its overall appearance and special historic character. Precedents have been set on other buildings and a comparison can be made to other Mill Conversions. Furthermore to this it is considered that the buildings central location (with access to services) and local recreation facilities helps to mitigate against the perceived shortcomings of the amenity standards. Internally the accommodation is well proportioned with a good range of apartment sizes, the conversion of the Boiler House to a communal leisure space, along with onsite D2 uses will also be a valued amenity asset for future residents,

There is both a strong design (as outlined above) and heritage case for non-compliance with standards. The benefits of the scheme would outweigh the normal requirements for private amenity standards.

Noise/disturbance

To address the requirements of Core Strategy policy SIE-3 a noise assessment has been provided to consider the noise insulation requirements for the accommodation proposed. This approach is also outlined within the NPPF which seeks to avoid noise giving rise to significant adverse impacts on health and quality of life as a result of new developments.

The Environmental Health Officer do not object to the development in principle, but recognises that the close proximity of noise generating uses nearby. The noise report has assessed that the development can meet internal noise levels and the potential impact of the residential causing blight to nearby businesses. The report advises that internal noise levels can be met but there will need to be an upgraded window specification and some form of ventilation system to meet internal noise levels. The detail of this mitigation will need to be conditioned so that any attenuation is implemented prior to the occupation of the development. In order not to compromise the heritage a value of the building a secondary glazing system may need to be considered.

Drainage

In terms of assessing drainage and flood risk Policy SD-6 ‘Adopting to the Impacts of Climate Change’ applies. The site is falls within Flood Zones 2 & 3 of the Environment Agency’s Flood Map.

Although the site is located in Flood Zone 2 and 3, the residential development will be at levels above the Flood Zone 3 and such development (classified as ‘More Vulnerable’) is deemed appropriate according to NPPF and would not be at risk as this will be located at 1st floor level and above (finished floor level of 44.20). The commercial development is classified as ‘Less Vulnerable’ and is allowed in Flood Zone 3; the building is also existing and the Exception Test is therefore not required. A flood warning area covers the area of the site with the risk emanating from the River Tame, the site is at low risk of flooding from other sources.

The proposals in the main relates to the change of use of the existing mill building. Associated building operations to accommodate this would not increase run-off levels. The site is served by an existing drainage system, the LLFA have been consulted and raised no objections subject to recommended conditions to reduce existing runoff levels by 50% including 40% allowance for climate change. Consequently there are no drainage objections and the proposals would satisfy the requirements of policy SD-6.

Other Matters

Air Quality: - The development is located adjacent to the M60 AQMA. As such, there is the potential for the exposure of future residents to poor air quality and vehicles travelling to and from the site to increase pollution levels in this sensitive area. These issues have been considered throughout the assessment.

The results of the dispersion modelling assessment indicated that predicted annual mean NO2 concentrations were within respective standards at all locations across the site. Exposure of future users to poor air quality is therefore considered unlikely as a result of the proposals.

Based on the assessment results, air quality issues are not considered a constraint to planning consent for the development. Crime: - The planning application is supported by a Crime Impact Statement (CIS), prepared by Design for Security at Police, which assess the proposal in terms of crime prevention and safety. The CIS recognises that the development will bring this vacant building back into use and will provide more active frontages to the public elevations which has the potential to improve natural surveillance. Recommendations are proposed with regard to access controls, lighting and CCTV these matters will be conditioned, any interventions will need to be balanced against the preservation of the Listed Building.

Ground Conditions: - The proposals would not require the breaking of ground, the Environmental Health officer comments that users would not be at risk from contamination and that further investigatory work is not required. Sustainability: - In accordance with policy SD-3 an Energy statement has been submitted. The proposals recommend a 'fabric-led' approach, due to the buildings listed status interventions will be largely limited to roof installation and window replacement. In addition energy saving fixtures will be installed where appropriate. The recommendations have been met with the approval of the Energy officer and is considered to be in accordance with Core Strategy DPD policies CS1 (Overarching Principles: Sustainable Development - Addressing Inequalities & Climate Change), SD1 (Creating Sustainable Communities), SD3 (Delivering the Energy Opportunity Plan) and SD6 (Adapting to Climate Change).

Archaeology:- In accordance with policy SIE3 and NPPF paragraph 128 it is recommended that a condition of further archaeological investigation is applied.

CONCLUSION

The site is located within a highly sustainable location. The proposal would establish the efficient re-use of Meadow Mill, a significant building that occupies a key gateway site to the town. The proposals will consolidate town centre uses at the site and bring welcomed accommodation on the periphery of the town centre, this in turn will make a significant contribution to its overall vitality and vibrancy.

The building lends itself to a mixed leisure/residential use development. The alterations required to facilitate the use would not have a detrimental impact upon the architectural interest, historic fabric and setting of the mill. The subsequent regeneration will ensure the long-term retention of the heritage asset and compliment initiatives across the Town Centre.

Taking into account the relevant development plan policies and other material considerations, subject to the identified mitigation measures, it is not considered that there are any significant and demonstrable adverse impacts that would outweigh the benefits associated with the granting of planning permission. The proposal therefore complies with the development plan as a whole and the advice in the NPPF.

RECOMMENDATION

Members resolve to grant both full planning permission and listed building consent subject to recommended conditions and completion of a section 106 agreement to secure affordable housing and a contribution to off-site public open space.

Central Area Committee 13.04.2017

The planning officer introduced the report and highlighted the pertinent points of the application.

Members sought clarification from the officers with regards to asbestos and the structural integrity of the building. The applicant spoke in support of the application identifying the benefits of the scheme.

Members identified that bringing the proposal back into use would provide opportunities for jobs for the local area, and on average an additional 50-60 jobs. It was identified that the asbestos matters are a building control and environmental health matter and the applicant advised that subject to approval the application would be developed in phrases, starting this summer. 1st phase would be fixing the roof and conversion of the upper floors. Confirmation was sought with regards to sustainability and whether the flats were for rent or sale.

Members identified the benefit of the scheme and additional housing which would be provided and hope that some of the historic aspect would be retained.

Members resolved to grant planning permission to PHRC.