DEVELOPMENT VISION
Blackburn Road, Padiham Huntroyde Estate June 2017 Revision F LAND SOUTH OF BLACKBURN ROAD, PADIHAM.
CONTENTS Fig 1 Aerial Site Plan Fig 2 Historical Mapping 1893 1.0 Introduction Fig 3 Historical Mapping 1933 Fig 4 Plan Vue extract of Burnley BC’s original I&O plan 2.0 Site and Surroundings Fig 5 Composite Proposals Map Fig 6 Sustainability Plan Fig 7 Flood Risk Mapping 3.0 Site Context Fig 8 Personal Injury Collision Data Fig 9 General Arrangement Drawing of Proposed Site Access to Employment Site 4.0 Planning Policy Context Fig 10 Illustrative Masterplan
5.0 How the Site Meets NPPF Sustainability Requirements APPENDICES 6.0 How the Site Meets the Purposes of Green Belt Requirements A Letter of representations dated 10.2.15 to Burnley Borough Council (BBC) 7.0 Traffic & Transport Matters B Letter of representations dated 23.8.16 to BBC preferred 8.0 Commercial Market Demand I&O consultation
C Letter of representations dated 26.5.17 to BBC proposed submissions 9.0 Vision for the Site consultation, including plan & letter of support from Maple Grove Developments 10.0 Conclusions
Prepared by:
TOWN PLANNING CONSULTANCY ARCHITECTURAL DESIGN CONSULTANCY
COMMERCIAL PROPERTY CONSULTANCY HIGHWAY CONSULTANCY
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1 INTRODUCTION
1.1 This site lies to the south of Blackburn Road, Padiham and provides an ideal infill employment site to provide additional employment land adjacent to Shuttleworth Mead Business Park and the western edge of Padiham.
1.2 It has easy access to and will contribute toward the existing services and facilities in Padiham, as well as good links to the wider area and access to the M65 J8.
1.3 The site is in single ownership being owned by the Huntroyde Estate, one of the principal landowners in the Padiham area.
2 SITE AND SURROUNDINGS
2.1 The site is triangular in shape. It is currently grazing land. It is relatively flat and slopes gently to the south. It extends to 8.8ha or thereabouts. Along Blackburn Road a hedge fronts the site at the eastern end with a dry stone wall along the rest of this frontage. There are a mixture of hedgerow and trees along the other 2 sides of the site and three main lines of hedges/trees demarcating field boundaries.
2.2 Stirkins Farm on the main road frontage is not part of the site.
2.3 The southern boundary is demarcated by the Padiham Greenway Sustrans cycle route on the line of the old railway and abuts the existing settlement boundary of Padiham to the south. The eastern boundary also abuts the current settlement edge of Padiham is bounded by Old Parsonage Lane which is a cul de sac and public footpath. Beyond the lane is the Fig 1 - Aerial Site Plan cemetery. There is a short row of terraced houses fronting Blackburn Road to the north east corner of the site and a longer ribbon of houses on the north side of Blackburn Road all of which are within the existing Padiham settlement boundary.
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2.4 The section of Blackburn Road across the site is straight, so access and visibility are 3.2 Mapping from the 1930’s, shows the site with field delineation and the newly unfettered. It is also a main bus route with several bus stops along the site frontage. built coal fired Padiham Power Station and Rail sidings. The Power Station was decommissioned in 1993 and subsequently demolished in the early 00’s. 2.5 The site is approximately a mile from J8 of the M65 to the south and also the A56/ M66 to Manchester. It is about half a mile at its nearest point to Padiham town centre.
2.6 There are no site constraints. The site is free of overhead pylons and cabling and so far as we can ascertain no underground cables or fixed assets are within the site.
3 SITE CONTEXT
3.1 The earliest mapping freely available indicates that the site was used for agricultural Fig 3 - Historical Mapping 1933 purposes, with the Great Harwood Loop Rail line to the southern boundary. Image looking North East 1970’s Image looking North West 1980’s
Fig 2 - Historical Mapping 1893
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4.2 We have held discussions with the planning policy officers at Burnley Council. At 4 Planning policy context the preferred options consultation stage in August 2016 we reiterated why our client’s site is the most appropriate site in Padiham for employment use. (see letter dated 23.8.16 at Appendix B) Burnley’s emerging Local Plan background to employment site allocation at Padiham 4.3 This Vision document has been prepared in addition to support the further 4.1 Our clients’ land at Blackburn Road South was included in the SHLAA as HEL/160 representations made to the BBC proposed submissions document, in the letter and was shown on the original Issues and Options map as the preferred employment dated 26.5.17 at Appendix C which includes a letter of support for the development site in Padiham. We have since February 2015 (see attached letter dated 10.2.15 of the site from Maple Grove Developments who are in discussions with our clients at Appendix A) promoted this site as the most appropriate and policy compliant site concerning this land. for employment use in Padiham. 4.4 We have reviewed the SHLAA March 2017 document and are concerned at the inconsistency of approach applied in assessing our clients site and the Eaves Barn Farm site. Both these sites are currently in the Green Belt despite what the SHLAA reports and summary highlight. HEL/160 4.5 Appendix G of the SHLAA March 2017 document refers to developable employment sites and HEL/171 also known as EMP1/13 or Eaves Barn Farm is summarised as being open countryside and also having been shown as the preferred employment site at I&O, preferred options and submission stage.
4.6 However, the March 2017 SHLAA is incorrect as HEL/171 is not in open countryside, but is actually in the Green Belt and was not the preferred site in the I&O but was at the preferred options stage. HEL/171 4.7 Not only is it in the Green Belt but furthermore HEL/171 lies south of the River Calder and further away from the main settlement of Padiham. It abuts the settlement Fig 4 - Plan Vue extract of Burnley BC’s original I&O plan boundary only in so far as it is to the south west of the river and Shuttleworth Mead
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Business Park which forms the settlement boundary. HEL/171 has no connectivity principles for EMP1/13 notes in order for this site to come forward it will also need and is divorced from the main settlement of Padiham by the river. It directly conflicts to provide a flood alleviation scheme and also improvements to the highway junction with paras 79 and 80 of NPPF as it will not preserve the openness of Green Belt and possibly a new bridge for access, all of which are major costs. The site is a and it will not assist in safeguarding the countryside from encroachment. It will lead site known to house Protected Species, including European Protected Species, is to coalescence of adjacent settlements as Fig 5 (a composite plan of the proposal a National Priority Habitat and would need to address the impact on the setting of maps for the three councils (Burnley/Hyndburn/Ribble Valley) who abut each other Workhouse Farm, a Grade II Listed Building. It has no public transport available and at the Blackburn cycle links would involve using the A6068 by pass with inherent safety issues. It has Road/A6068 junction) no connectivity to Padiham and would extend the settlement boundary in a way clearly demonstrates. that contradicts the NPPF purposes of Green Belt and would significantly narrow the The Eaves Barn Farm Green Belt gap in this area and would detract from its openness. site is liable to flooding 4.8 Our clients site HEL/160 is shown in Appendix C of the SHLAA March 2017 as and lies within Flood an excluded employment site with the reason being ‘Contrary to national policy; Zones 2 and 3a on the ‘Inappropriate’ development in the Green Belt ‘. The following sections of this report Environment Agency clearly identify why our clients site is in fact the more policy compliant site and Flood Map (refer to should therefore be the preferred employment allocation. fig 7). Access to the site has not been 4.9 Looking at site constraints and whether the requirements for NPPF sustainability agreed and our clients and Green Belt purposes are addressed in comparing these 2 sites which are both
Fig 5 - Composite Proposals Map for the Blackburn Road/ A6068 understand it would Green Belt in the adopted plan. Then our clients site offers the less constrained, area (Burnley/Hyndburn/Ribble Valley) require a bridge link to more policy compliant sustainable location and the loss of it from Green Belt would the existing employment land to the north. It is traversed by a plethora of pylons not impinge of the purposes of that policy. and power lines that will limit the height of buildings and reduce the developable area to well below the 9.72ha (gross) indicated and removal or relocation of pylons and power lines is extremely costly and given the suggested uses of B1/2/8 would be unviable. The PI&O on page 121 referring to the policy requirements and design
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5.2 The site is sustainably located and in line with NPPF. People employed at the site 5 HOW THE SITE MEETS NPPF would have the opportunity to use non car modes of transport to travel to/from work SUSTAINABILITY REQUIREMENTS and to access services and facilities in Padiham. This site meets this requirement in that it would be rounding off and infill of land immediately adjacent to the second 5.1 The attached sustainability plan [Fig 6] shows the range of residential, commercial, largest settlement in the Burnley Borough Council area, which has a wide range of industrial, social and community facilities available within the 500m, 1000m and services and facilities, expected in a town centre, including retail, recreation and 2000m catchment area. Plan 3 in section 7, shows the accessibility of the site and healthcare. main transport links. • Tesco and Co-op foodstores • A leisure centre • public library • local convenience stores • a Post Office • banks and building societies • a range of restaurants and takeaways
5.3 The economic, social and environmental benefits are the key factors identified in NPPF as comprising sustainable development. • Economic – the site will offer long term employment opportunities as well as job opportunities during the construction phase; • Social – the site is located close to the centre of Padiham; the existing Padiham Greenway Sustrans cycle route abuts the site, The footpath network around the site will be retained and has potential to be enhanced through linkages through the site; these opportunities to use the recreation facilities will make an important contribution to the health and wellbeing of the employees; the scheme will deliver a mix of starter units and small to medium size units in line with current market indications; the employment area would be set in an attractive and landscaped Fig 6 - Sustainability Plan environment.
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• Environmental – the scheme will not have any adverse impact on heritage assets has been interest expressed to our client by Maple Grove Developments (MGD) in or areas of ecological value or protected species; the site is not in a flood risk developing this site for employment uses (see attached letter at Appendix C). area [refer to Fig 7]; suitable planting and landscaping will be incorporated in the 5.6 The site could deliver in the order of 20,000m2 of employment uses (B1/2/8) in scheme which will minimise waste and support new habitats and ecosystems. a range of unit sizes from Starter units (60-90m2), to medium sized units up to 1000m2.
5.7 A general evaluation of the site has not given rise to anything that would restrict development of this site or that could not be mitigated against. The site is not in a flood risk zone (refer to Fig 7) and it is not fettered by underground or overhead cables/pipes/pylons etc.
5.8 Suitable access to the site can be achieved directly from Blackburn Road.
5.9 Infrastructure is adequate. Surface and foul water drainage, gas, water, electricity and telecommunications connections can be achieved so there are no utility constraints to development on the site.
5.10 No specific archaeological matters have been identified.
5.11 No noise or air quality issues have been identified. Fig 7 - Flood Risk Plan 5.12 Ecologically it is a field that has been grazing land for many years and such land
5.4 Deliverability is a further requirement of NPPF. To be considered, deliverable sites has limited ecology. The site is not within nor adjacent to any SSSI/SBI. There should be available now and be achievable with a realistic prospect of employment are no protected species on the site as far as we can ascertain, but an ecological development coming forward within the plan period and also that such development assessment would be undertaken prior to any development and suitable mitigation is viable. included if required.
5.5 The site is available now. It is in the ownership of a single landowner and there 5.13 We understand that Stirkins Farm is a heritage asset of local historic interest but
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it is not a Listed Building. Nevertheless, suitable landscape screening would be Padiham encompasses this site on about 75-80% of its edge.
incorporated into any development scheme. • It will not lead to the further spread of development and thus will prevent neighbouring towns from merging. The existing business park entrance is closer 6 HOW THE SITE MEETS THE PURPOSES OF to the main traffic light junction with the Time Business Park and Altham which GREEN BELT REQUIREMENTS are the employment developments in the neighbouring council areas of Hyndburn and Ribble Valley which converge at the said road junction and are recognised as 6.1 According to the adopted and emerging development plans for Burnley the site is ‘key gateway’ on the ‘proposals map west’ in the current consultation document. allocated as Green Belt. Section 9 of NPPF deals with Green Belt and at para 79 • Our client’s site will assist in safeguarding the countryside from further explains: encroachment as the site is already enveloped by the existing settlement boundary so is contained. ‘The fundamental aim of Green Belt policy is to prevent urban sprawl by keeping land • It will consolidate employment development adjacent to the existing Shuttleworth permanently open; the essential characteristics of Green Belts are their openness Mead Business Park and will infill and provide rounding off of Padiham. and their permanence.’ • The River Calder to the south of the existing Shuttleworth Mead Business Park 6.2 It continues at para 80 to set out the 5 purposes of Green Belt: provides a natural and strong defensible boundary to this part of Padiham. Any • to check the unrestricted sprawl of large built-up areas; extension to the south of the river would be less defensible and would encroach • to prevent neighbouring towns merging into one another; into the Green Belt and upon its openness eroding its permanence. • to assist in safeguarding the countryside from encroachment; • The site will not impact on the setting of an historic town, as Padiham is not so defined. • to preserve the setting and special character of historic towns; and • The Council have accepted there is a need for about 8-9ha of employment land • to assist in urban regeneration, by encouraging the recycling of derelict and required in the Padiham area and none of the PDL sites are of sufficient size. other urban land. Our client’s land immediately abuts the settlement boundary to the east, south 6.3. We still consider this to be so for the following reasons: / south west and for a majority of its northern boundary. It is a natural infill and
• The site does not serve the purposes of Green Belt as it is virtually surrounded by rounding off. the existing settlement boundary of Padiham and is a suitable and sustainable infill site rounding off this part of Padiham. The settlement boundary of
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7 TRAFFIC & TRANSPORT MATTERS The A678 past the site benefits from standard street lighting as well as standard width footways on both sides of the carriageway. The site benefits from an agricultural gated access to the adjacent public highway network.
7.1 The site is located immediately to the south of the A678 Blackburn Road, as shown Sustainable Access on plan 1. The A678 forms part of the strategic highway network, and is the main 7.2 The north-eastern boundary of the site is a 850m walk from Padiham town centre, western route into Padiham. The A678 benefits from an 8m wide carriageway past linked via continuous footways to a range of local facilities in the town centre [Re- the site, and vehicular traffic is subject to a 40mph speed limit, reducing to 30mph fer to Plan 2]. The town centre benefits from a range of local facilities, including: 225m west of the cemetery and 185m east of the existing agricultural access to the development site. • Tesco and Co-op foods tores • A leisure centre • public library • local convenience stores • a Post Office • banks and building societies
• a range of restaurants and takeaways
7.3 The site also benefits from being located close to the Public Right of Way network, with a public footpath running north-south into the site from the A678 to the east of Stirkins Hall Farm. The site also benefits from being located immediately to the north of the Sustrans Route 685, known as the Padiham Greenway. The Sustrans website confirms that this route: “….connects Burnley, Padiham and the surrounding villages together, creating links into the town cenmanley to Padiham railway, the direct link provides a safe, attractive walking and cycling route” Plan 1 - Local Highway Network 7.4 The close proximity of this established pedestrian and cycle route is seen as
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proposed employment site. For reference Department for Transport (DfT) guidance states that walking has the potential for short car trips, particularly under 2km. The National Travel Survey (NTS 2012) shows that 77% of trips of less than a mile (1.6km) are undertaken on foot.
7.6 At a local level the 2011 Census data confirms that 44% of residents living and working within Padiham (Gawthorpe Ward) travel less than 5km to work, and 18% travel less than 2km to work. Only 27% of working residents travel more than 10km to work. This Census data confirms that there is a high level of containment within the town for work.
From From Padiham Ameni- Main Eastern Location/Address ties/Services Access Pedestrian (km) Access (km) Tesco Food Store Wyre Street, Padiham BB12 1.3 1.0 18 Sowerby Street, Padiham Co-op Food Store 1.5 1.2 BB12 8DB 1.7 (via 1.2 (via local Padiham Leisure Park Road, Padiham BB12 8ED Route highway Centre 685) network) Plan 2 - Public Transport Provision & Sustainable Access Routes Town Hall, Burnley Road, Public Library 1.25 0.95 a significant benefit to a potential allocation of the site for an employment Padiham BB12 8BS use. Whilst the route is currently accessed from a segregated route from the Local Convenience Stores (within town Town Centre 1.2 1.0 A6068 opportunities also exist to provide new linkages from the proposed centre) employment site to provide direct pedestrian and cycle access to Route 685. Padiham Post Of- 24 Burnley Road, Padiham 1.1 0.8 Further commentary on this sustainable access opportunity is provided later fice BB12 6TA Banks and Building in this submission. Town Centre 1.2 1.0 Societies Restaurants and Town Centre 1.2 1.0 7.5 Returning to sustainable access from the site from Blackburn Road table 1 Takeaways provides a summary of relevant local facilities that can be accessed from the Table 1 - Distance to Local Services and Amenities
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7.7 Based on the site being located less than a 1km walk from the town centre, with 7.10 The areas surrounding the site are relatively flat and this is acknowledged in the good quality, continuous pedestrian links between the site and nearby residential resulting cycle journey times. All of the distances to local services and amenities areas the potential employment site is shown to be easily accessed on foot, and are well within recognised DfT accessibility standards, which are summarised in well within the recommended 2km walk catchment. The site’s sustainable location table 3.
will reduce the reliance on the private car for employees living within the town and working at the site. Service DfT Accessibility Indicator (mins) Food store 30 7.8 Turning to access by cycle DfT guidance states that cycling has the potential to Town centre 30 substitute for short car trips up to 5km in length. This represents a journey time Employment 40 of 25 minutes based on a slow cycle speed of 200m/minute, or 15-minute journey Table 3: Relevant DfT Accessibility Standards time based on a leisurely, average cycle speed of 333m/minute.
7.9 Journey times to the local destinations presented in table 2 have been derived 7.11 The 2km walking catchment and 5km cycle catchment are shown on plan 3. The from the cyclestreets route planner (cruising speed) and are shown in table 2. plan, coupled with the information presented in this submission confirms that safe and direct access to the site on foot and by cycle is provided from existing infrastructure on Blackburn Road and the Sustrans Route 685. No additional off- Padiham Amenities/ Cycle Time from Main Access (km) Services site infrastructure (such as the extension or provision of new footways and cycle Tesco Food Store 6 mins 28 seconds (via local highway network) routes) is required to make the site accessible by sustainable modes. Co-op Food Store 6 mins 28 seconds (via local highway network) Padiham Leisure Centre 10 mins (via PROW) 7.12 There are ‘soft’ and ‘hard’ sustainable transport measures that could be delivered Public Library 5 mins 40 seconds (via local highway network) as part of any site allocation, which include appropriate cycle parking on the site, Local Convenience Stores Circa 5 mins depending on destination (via local the delivery of a site-wide Travel Plan and a new physical connection to Sustrans (within town centre) highway network Padiham Post Office 6 mins 5 seconds ((via local highway network) Route 685. Further commentary on these sustainable measures is provided later Circa 5 mins depending on destination (via local in this submission. Banks and Building Societies highway network Circa 5 mins depending on destination (via local Accessibility by Bus and Rail Restaurants and Takeaways highway network 7.13 With regard to public transport accessibility Plan 2 and table 4 shows the routes Table 2 - Cycle Journey Times to Local Services and Amenities
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any employment development there would be an expectation that the nearest stops to the site would also benefit from being upgraded to provide shelters and timetable information. If appropriate real-time bus timetable information could also be provided as part of any new bus shelter provision. Further commentary on sustainable transport improvements is provided later in this submission.
7.15 Table 4 provides a summary of the existing bus services routing within 400m of the site.
First Average Last Week- Weekday Week- Service Operator Route day Bus Daytime day Frequency Bus Burnley Bus Station - Padiham 1 bus - Altham Business Park - Clay- 152 Transdev 0627 every 30 2244 ton-le-Moors - Rishton - Black- minutes burn - Feniscowles - Hoghton - Higher Walton - Preston Table 4: Existing Bus Routes on Blackburn Road
7.16 Table 4 confirms that the proposed employment site benefits from a regular bus service, operating on a 30-minute headway between circa 0630 and 2245 hours. The 152 service is a longer distance route between key locations such as Burnley, Plan 3 - Site Accessibility Blackburn, Padiham and Preston, and gives the site excellent accessibility by bus and frequencies of the bus route serving the local bus stops. The IHT document, throughout the working day. ‘Planning for Public Transport Developments’, states that 400m (a five-minute walk 7.17 The site is also located approximately 3.5km away from Hapton railway station. time) is an acceptable walking distance to local bus services. Whilst this rail station is located outside of the recognised 2km walk distance it 7.14 The site benefits from multiple bus stops along Blackburn Road, which all fall does fall within the 5km cycle distance, and could be attractive for employees well within the IHT recognised 400m walk distance. The stops along the site working at the site to travel to/from the facility by this mode of transport. A frontage are simple ‘post and flag’ stops, with the westernmost stop on the A678/ summary of the rail services to/from Hapton is provided in table 5. A6068 junction benefitting from a shelter and timetable provision. As part of
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First Average Last to integrate with existing community. Based on the sustainable location of the site Rail Service Weekday Weekday Week- Route it is demonstrably shown that the proposal accords with local and national policy Station Destination Service Daytime day Frequency Service requirements. Hapton – Huncoat – Accrington – Church & Oswaldtwistle – Rishton – Blackburn – Mill Hill – Cherry Tree – Pleasington – Bamber Blackpool 1 train per Bridge – Lostock Hall – Preston – Salwick – Existing Traffic Conditions on the A678 Blackburn Road Hapton 0551 2153 South hour Kirkham & Wesham – Moss Side – Lytham – Ansdell & Fairhaven – St Anne’s on Sea 7.21 To ensure that an appropriate and deliverable access strategy can be provided – Squires Gate – Blackpool Pleasue Beach – Blackpool South to the proposed employment site, consideration has been given to existing traffic
Hapton – Rose Grove – Burnley Barracks conditions on the A678 Blackburn Road. The review has considered: 1 train per Hapton Colne 0554 2329 – Burnley Central – Brierfield – Nelson - hour Colne • the volume of two-way traffic on this route in peak periods Table 5: Existing Rail Services • existing vehicle speeds 7.18 Opportunities also exist as part of any site-wide travel planning for the site to • Personal Injury Collision (PIC) data provide a guaranteed lift to/from the site to the rail station, to encourage use of this sustainable mode of transport for longer distance trips. Further commentary 7.22 To understand the volume and speed of traffic on the A678 a seven day Automatic on sustainable transport enhancements are provided later in this submission. Traffic Counter (ATC) was placed on the carriageway between the 25th and the 1st July 2017. The survey confirmed that the AM and PM peak periods are 0800 to Accessibility Summary 0900 and 1700 to 1800 hours respectively.
7.19 This section of the submission confirms that the site is well located in relation 7.23 With regard to the volume of traffic using the A678 during these peak periods the to local services and amenities, and that the existing walking, cycling and public surveys confirm that the neutral weekday flows are: transport routes provide opportunities to access local and more distant areas by • non-car modes. AM peak – 593 two-way movements (215 eastbound and 378 westbound) • PM peak – 623 two-way movements (420 eastbound and 203 westbound) 7.20 The proposed employment site links is well located for access from Padiham town centre and the surrounding residential areas, as well as the strategic highway 7.24 The survey data confirms that the traffic movements are tidal on the A678, with network. The site has been shown to be well located to benefit from existing circa two-thirds of vehicle trips heading west in the AM peak and east in the PM good quality pedestrian, cycle and public transport infrastructure, which in turn peak periods. will reduce the reliance on the private car and allow the development proposals
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7.25 With regard to vehicle speeds the survey data presented in table 6 confirms the following traffic speeds on the A678 Blackburn Road:
Westbound Eastbound A678 Blackburn Road Speed Survey (mph) (mph) Average Speed 38.8 41.3 85%ile Wet Weather Speed 46.0 47.8 Table 6: A678 Blackburn Road ATC Surveyed Speeds
7.26 Table 6 confirms that on the 40mph section of Blackburn Road motorists are travelling either at or in slightly in excess of the current speed limit. Whilst this is an existing issue as part of any development proposals on this corridor opportunities to introduce traffic calming measures to control vehicle speeds along this route could be considered.
Road Safety Fig 8: 2012 to 2016 Personal Injury Collision Data (Crashmap Extract)
7.27 As part of the consideration of the access strategy for the site a comprehensive 7.29 This review demonstrates that with no recorded collisions on this section of the assessment of Personal Injury Collision (PIC) data for the five-year period up to the adopted highway the opportunity to deliver a new vehicular access, designed to end of 2016 has been undertaken. This review has been undertaken to ensure that appropriate standards is appropriate and also deliverable in this location. the principle of access onto Blackburn Road is appropriate and will not introduce a Proposed Vehicular Access new access where there is an adverse collision record. 7.30 Having ascertained the volume of traffic currently using the A678 Blackburn Road 7.28 Fig. 8 confirms that there have been no recorded collisions along the development in the peak periods consideration has been given to the most appropriate form of site frontage on the A678 Blackburn Road over the last five years. vehicular access to the proposed employment site. Using the survey data and the TRICS database vehicle trip rates for 20,114m2 of B1/2/8 development the access strategy has been developed. A summary of the predicted development trip rates is provided in table 7.
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Vehicle Trip Rate (per unit) Vehicle Trips 7.32 The ghosted right turn junction has been positioned in the same location as the In Out Total In Out Total existing agricultural access to the site. Positioning the access in this location also AM 0.401 0.15 0.551 81 30 111 ensures that visibility splays of 2.4m x 120m can be provided either across land the PM 0.196 0.189 0.385 39 38 77 site promoter controls or the publically adopted highway. There are no known land Table 7: Development Vehicle Trip Generation ransom issues that would affect the delivery of the site access as shown in fig. 9. 7.31 Using these development flows, and the surveyed two-way peak period traffic flows the access strategy has been development. Based on the design advice Traffic & Highway Impact presented in DMRB TD 42/95 a ghosted right turn junction has been deemed as 7.33 To demonstrate that the proposed development access strategy will operate with the most appropriate junction formation for the scale of development proposed. accepted capacity thresholds operational assessment of the proposed site access An extract of the proposed General Arrangement for the site access is presented ghosted right turn junction has been undertaken using industry standard PICADY in Fig 9. junction analysis software.
7.34 The results of the operational analysis of the ghosted right turn junction are summarised in table 8. Full assessment output is included in appendix D for the AM peak periods and PM peak periods.
Ratio of Mean Arriving Start End Modelled Period Flow to Vehicle Delay Queue Queue Capacity (min) 2019 AM Base + Dev Access Junction 0.089 0.10 0.10 0.18 Blackburn Road (West) 0.059 0.06 0.06 0.12
2022 PM Base + Dev Access Junction 0.121 0.14 0.14 0.20 Blackburn Road (West) 0.048 0.05 0.05 0.11
Table 8: Proposed Ghosted Right Turn Junction - Site Access AM and PM Fig 9: General Arrangement Drawing of Proposed Site Access to Employment Site Peak Base with Development Summary
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7.35 The assessment results show that the junction will operate well within capacity 7.38 These sustainable transport measures will further enhance the sustainable thresholds in the AM and PM peak assessment scenarios. The proposed vehicular credentials of the site. access is confirmed to be appropriate to accommodate all traffic movements associated with an employment use on the site, and has been designed in accordance Transport Summary and Conclusions
with DMRB TD 42/95. 7.39 This assessment has been prepared to demonstrate that the proposed employment site is sustainably located, and that an appropriate pedestrian, cycle and vehicular Sustainable Transport Measures access can be delivered. This review confirms: 7.36 As demonstrated in this section of the submission document the site is sustainably • located, benefits from good accessibility via existing bus services on the A678 that the site is located well within the recommended 2km walk distance from Blackburn Road and an appropriate access can be delivered onto the A678 without Padiham town centre and nearby residential areas
any material change in highway capacity or delay on the network. • that good quality continuous pedestrian links exist between the site and a
7.37 As with all development proposals even a sustainably located site can offer further range of local services and facilities in the town centre
improvements to encourage sustainable travel to and from the site. As part of • the site benefits from being located immediately adjacent to Sustrans Route this review the following measures have been identified to further enhance the 685, which provides direct access into Padiham town centre sustainable credentials of the site: • the site can connect directly into the adjacent Sustrans route • provision of on-site parking at the site that meets adopted standards • there are a range of local and relevant services within Padiham town centre • cycle parking, shower and changing facilities to be provided at all new buildings that employees working at the site can access on foot or by cycle • delivery of lit pedestrian routes along the site frontage to connect into the ex- • the A678 Blackburn Road benefits from a frequent bus service which routes di- isting footway on the southern side of the A678 Blackburn Road rectly past the site, offering employees a 30-minute headway service from early • delivery of a site-wide travel plan morning to late evening
• provision of improved bus waiting facilities on the A678 Blackburn Road • existing traffic flows on the A678 Blackburn Road are circa 600 two-way move-
• delivery of a new pedestrian/cycle link from the site to Sustrans Route 685, to ments in the AM and PM peak periods, with average vehicle speeds recorded provide access to Padiham and other nearby destinations at, or slightly higher than the existing 40mph speed limit
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• no collisions have been recorded along the A678 Blackburn Road along the site 8 GENERAL MARKET CONDITIONS & OVERVIEW frontage
• the circa 20,000 sqm B2/B8 development is predicted to generate 111 and 77 two-way vehicle movements in the AM and PM peaks respectively Historic Background to Market 8.1 In the last decade the property market has experienced its most volatile period • the proposed ghosted right turn junction (which has been designed to DMRB since reliable performance analysis commenced in 1981. The main catalyst for 42/95 standards) can accommodate the development traffic and existing traffic a general fall in commercial property capital values from 2007 was the global flows on the A678 without any material impact in terms of capacity or delay credit crunch, which severely affected the availability of funds to finance property investments and transactions across all sectors. The situation has now stabilised • an employment allocation at the site could provide a direct connection into the and the last 2 to 3 years has seen renewed capital investment and growth in the Sustrans Route 685 immediately to the south of the site, deliver improved bus UK economy. waiting and timetabling information at existing stops on Blackburn Road and provide a site-wide Travel Plan to encourage all employees and visitors to the Current Market Position in the North West site to travel sustainably 8.2 In recent months, investment yields have according to the Royal Institution of 7.40 This assessment of traffic and transport matters confirms the site is sustainably Chartered Surveyors in general consolidated and hardened in the North West located, benefits from excellent connectivity on foot, cycle and public transport and as they arguably have elsewhere in the UK. They still remain dependent on the can be appropriately and safely accessed from the A678 Blackburn Road. Based covenant profile of prospective end users. This is of particular importance with on the findings in this section of the submission document there are no traffic or regard to occupational tenants and in determining capital values. transport reasons why the development site should not be brought forward as an 8.3 The more well-established and well managed businesses do, however, continue employment site. to thrive. This is evidenced by the number of enquiries that are received for more accessible and more modern accommodation, particularly those benefiting from good means of communication to the motorway network. Burnley generally offers a reasonable supply of late 1980s & 1990s built industrial and warehouse accommodation, specifically along the M65 Motorway corridor and on modern industrial buildings at sites such as Burnley Bridge and Network 65. Occupation levels are high and supply limited. The types of buildings do vary in size, age and
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quality and that has a marked effect on the level of demand and general capital last decade, largely due to the lack of appropriate land supply and also, commercial and rental values. viability issues associated with the same, due to perceived high risk margins of speculative development. 8.4 Due to changes in working and occupier requirements, the type of accommodation in Burnley and Padiham are in some instances dated offering, in the case of 8.8 Despite recent Government initiatives in the form of Local Enterprise Partnerships warehousing, lower eaves heights which do not satisfy current occupier demand. and the formation of the Lancashire Enterprise Partnership (LEP), investment in Similarly the type of office accommodation available does not always provide open the region seems to be focused on the aeronautical industries at Warton and plan space with provision to cater for IT requirements and controlled temperature Samlesbury to the west, which are generally opportunities reserved for large scale for the working environment that many businesses require. blue chip business operations focused on high-tech manufacturing.
8.5 Market research and activity in the market place undertaken by Eckerleys has 8.9 The most recent example of new business space development is the Burnley Bridge established that in the Central and East Lancashire areas there is latent demand for scheme at Junction 9 of the M65. This scheme was assisted with grant funding modern industrial warehouse accommodation (B8) generally in generally excess of secured in December 2011 through ERDF Financing. 1,850 m2 (20,000 ft2) up to 200,000 ft2, predominantly on a freehold basis and within established industrial estates, typically close to motorway junctions. The 8.10 There have, however, been limited amounts of small scale private development in demand for leasehold property is generally more limited. Similarly, there has been the area and what has transpired is typically found further to the south at Buckshaw an increased take-up of smaller accommodation from 70 m2 to 186 m2 (750 ft2 to Village, Chorley and South Rings, Preston just off the M6 Motorway at junctions 28 2,000 ft2) and medium sized 275 m2 to 465 m2 (3,000 ft2 to 5,000 ft2). and 29 respectively.
8.6 General business space (B1 B2 & B8) demand exists for modern, or better quality 8.11 It is a point of fact that these schemes have all come forward in the last 5 years as a buildings, again on a freehold/long leasehold basis, but only at competitive values. result of growing business confidence, sustained low interest rates and progressive Within the category and with office space in particular, there is, in some locations growth in the economy. The developers have responded to an increase in enquiries a noticeable under-supply. from businesses looking to establish themselves and move forward in utilising good quality, flexible and readily accessible property. 8.7 It is apparent that over the last 2-3 years business confidence has grown in the region and that there is now pent up demand for new industrial workspace and 8.12 Typically, the market has shied away from commercial development due to high warehouse accommodation generally to serve the needs of SME’s within the central land values, cost of construction and the perceived risk associated with this type core areas of East Lancashire. There has been some, but overall limited, new of development. These types of projects are not favoured generally by the larger development of industrial and commercial business space in the region over the funding institutions without certainty of pre-lets supported by suitable high quality and safe business covenants. Unless privately funded, most projects that focus on
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smaller scale schemes have stalled due to issues associated with finance. However, as seen on the small end of the spectrum, rentals in the region of £55 - £80 per m2 what has been tried and proven to be successful are small hybrid industrial units, (£5 to £7.50 per ft2) up to as high as £120 per ft2 (£10 per ft2) depending on the such as those found at Momentum Business Park undertaken by Roundhouse final specification and lease term are being asked and in most instances achieved. Developments, Bamber Bridge and at Craven Drive, South Rings by Places For 8.16 The rental figures quoted above are high in comparison to current market levels People. Roundhouse has also been successful with similarly small to medium- achieved for dated second hand stock, varying from £70 - £130 per m2 (£6.50 to sized industrial buildings on Buckshaw Village in their Eaton Point development. £12 per ft2) for office accommodation and rentals from £40 - £70 per m2 (£4 to 8.13 Locational factors are a key determinant factor in generating demand which £6.50 per ft2) for the smaller business type units. influences both rental and capital values. In addition, the standard of specification is important dependent upon whether “Grade A” standard to the units for offices Development Mix for the Site is required or more traditional workshop/warehouse type accommodation. There 8.17 The development proposals put forward by The Huntroyde Estate include a mixed is an expectation in the market place that new pavilion style offices will offer a scheme that provides scope for offices as well as industrial workshop/warehouse higher level specification than currently available second hand stock and should type facilities. include raised floors, perimeter trunking, air conditioning, full DDA compliance and, importantly, car parking to cater for staff and visitors. Lancashire County 8.18 Accordingly, a future scheme at Blackburn Road could provide a range of property Council’s highway parking standards still remain in conflict, however, with most sizes and could possibly incorporate the following: modern businesses operational requirements and therefore it is important that any new office scheme has appropriate car parking to cater for staff needs and avoid • Starter units that range in size from 60 m2 to 95 m2 in terrace formation. congestion arising from parked cars on public highways. These would offer flexibility to provide additional mezzanine areas and would have car parking and service apron to the front. 8.14 With regard to industrial space, flexibility is key. Many occupiers require good • Small Units from 135 m2 to 150 m2 similar in design specification to the working eaves height which affords the scope and opportunity to provide mezzanine starter units and offering scope to be interlinked. storage or office accommodation as part of the occupiers own fit-out. Units need • Medium size units 460 m2 to 930 m2, with 5-10% office content and 6 to be accessible, very secure and have car parking and service provisions to cater metre working height to eaves. These would have dedicated servicing for staff and business needs. areas and staff car parking.
8.15 The consequence of higher specification and operational needs obviously has • The potential for offices constructed over two-storey in a “Pavilion style” an effect relative to construction costs and therefore rental expectation levels with 60 m2 footprint at GF (120 m2 maximum) with WC facilities and 7 car particularly for offices. With regard to more basic general industrial accommodation spaces per unit. Units may be capable of being conjoined.
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8.19 The layouts for both the offices and business units would offer flexibility to allow for 8.23 Given this site is an infill and rounding off of the settlement boundary, it is anticipated long term investment for owner occupiers and investors or short lease opportunities that with no obvious site constraints and good access, the site could also be of for growing new businesses. interest to small to medium scale business users. Its strategic location and ready access to Padiham town Centre within 1 mile to the east and highway access to 8.20 The B1/2/8 accommodation would probably be built in phases, in line with market the M65 motorway 2 miles to the south. Accordingly, it would be anticipated demand and not necessarily on a speculative basis. that any commercial development would take the form of small business starter units offered on flexible terms and modelling those that have been successfully 8.21 The anticipated market demand for an employment led scheme in this location developed elsewhere in Lancashire. The available land also provides flexibility to is relatively easy to ascertain and is not perceived to be high risk. The road communication to the site and particularly access to the motorway network offer a range of small to medium sized business units.
are good and would not be problematic for SME’s looking to invest in their own 8.24 It is expected that the best case scenario for business take-up would be somewhere accommodation. There may be demand from local businesses within the immediate between 1,000 m2 to 2,000 m2 (10,000 ft2 to 20,000 ft2) per annum and any area and also within rural communities to the north. It is important to highlight development would probably be undertaken in small phases. These phases would that commercial development for employment uses on this site would probably be dictated by occupier demand based on the achieved rental and capital figures, need to attract businesses from further afield. That almost certainly would mean requiring a short to medium term commitment from a selected developer. the provision of new accommodation on flexible terms whether it be freehold/long
leasehold or short leasehold opportunities offered and competitive rentals and Conclusions - Commercial Property Market capital values. 8.25 The viability of such a scheme is probably dependent on the UK economy maintaining 8.22 In order to achieve the most viable proposition some of the development costs its current equilibrium, with sustained low interest rates and progressive market could almost certainly be absorbed by other appropriate employment uses such growth. A hard Brexit over the next 24 months could influence markets and this as a roadside Sui Generis type use such as a Petrol Filling Station with kiosk that needs to be monitored as a matter of course. incorporates limited convenience retailing, together with a C2 residential care home facility. Such uses are undersupplied in Padiham. These types of business 8.26 The site does offer an ideal development opportunity for a developer led mixed operations generate local employment opportunities and equally importantly they use scheme. It could absorb latent demand in the small business and investor also command higher land values. This can be taken as a positive contribution market where there is a clear shortage of supply of new accommodation stock. It to the scheme as it would assist in the funding and the delivery of service and also provides the potential for small to medium sized businesses to expand and highway infrastructure to the site. the investment for a new roadside Petrol Station and a modern care facility both of which are under supplied in Padiham itself.
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9 Vision for the Site 9.1 An illustrative masterplan layout is attached at Fig 10 showing the development vision for the site. This includes:
• A mix of B1/2/8 units and a range of unit sizes to match market requirements. • A scheme that includes high quality of design and layout. • Enhances and incorporates landscaping, POS. • Includes linkages through the site to the surrounding area by bike or on foot. • Excellent links to the existing transport network by public transport as well as private vehicles. • Creating a safe and attractive working environment.
• Creating long term job opportunities as well as during the site construction.
• Well related to existing services and facilities in Padiham.
Two Storey Pavilion Style Offices 60m²
Starter Units 60m² - 95m²
Small units 135m² - 150m²
Medium Size units 460m² - 960m². 6m eaves
Potential C2 use. Blackburn Road
Landscaping
New Screening
Existing Screening Shuttleworth Mead Business Park Roads - 7m wide carriageway, 2m footpaths and min 9m radi. Pedestrian and cycle access points Fig 10 - Illustrative Masterplan Bus Stop
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• Its removal from Green Belt will not impinge on the main purposes of 10 Conclusions Green Belt set out in NPPF.
• It is well connected to the existing employment area and to the services 10.1 This site to the south of Blackburn Road, Padiham provides the most sustainable and facilities in Padiham town centre. site for the provision of the identified employment land need for Padiham, for the • It has excellent multi modal transport and access links to the town on following reasons: foot, cycling, by car and by public transport. • The site can connect directly into the adjacent Sustrans route. • It is genuine infilling and rounding off of the settlement. • No collisions have been recorded along the A678 Blackburn Road along • It will assist in safeguarding the countryside from further encroachment as the site frontage . the site is already enveloped (75-80%) by the existing settlement boundary so is contained. • It can be appropriately and safely accessed from the A678 Blackburn Road. • It will not lead to the further spread of development and thus will prevent neighbouring towns from merging. • There are no traffic or transport reasons why the development site should • It will not have any adverse impact on heritage assets. not be brought forward as an employment site.
• It will not have any adverse impact areas of ecological value or protected • The site offers an ideal development opportunity for a developer led species mixed use scheme. • The site is not in a flood risk area. • It could absorb latent demand in the small business and investor market • Site has no underground or overhead constraints where there is a clear shortage of supply of new accommodation stock.
• Suitable planting and landscaping will be incorporated in the scheme which • It also provides the potential for small to medium sized businesses to will minimise waste and support new habitats and ecosystems. expand. • It is a suitable size to address the identified requirement of additional employment land. • It has investment potential for provision of uses which are under supplied in Padiham itself. • It has the ability to provide up to 20,000m2 of employment space in a mix of unit sizes. 10.2 This report demonstrates the site has no significant constraints and from • It will consolidate employment development adjacent to the existing planning, highways/transport and market perspectives there are no reasons Shuttleworth Mead Business Park. why the site should not be brought forward as an employment site as part of • The site will offer long term employment opportunities as well as job the emerging development plan. opportunities during the construction phase.
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Appendix A - Letter of representations dated 10.2.15 to Burnley Borough Council (BBC)
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Appendix B -Letter of representations dated 23.8.16 to BBC preferred I&O consultation
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Appendix B - cont.
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Appendix B - cont.
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Appendix C - Letter of representations dated 26.5.17 to BBC proposed submissions consultation, including letter of support from Maple Grove Developments
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Appendix C - Cont.
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Appendix C - Cont.
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Appendix C - cont.
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