Manchester City Council Item 10 Planning and Highways Committee 22 January 2015

Application Number Date of Appln Committee Date Ward 107012/LO/2014/C1 24 October 22 January 2015 City Centre Ward 2014

Proposal Listed Building Consent for proposed new staircase and footbridge across the at the First Street endof the Metrolink stop. Location Deansgate / Castlefield Metrolink Stop, West, M1 5LH. Applicant Mr David Bray, Transport for Greater Manchester, 2, Piccadilly Place, Manchester M1 3BG Agent As above

1. Introduction

The Metrolink stop at Deansgate – Castlefield is undergoing significant modifications to increase passenger capacity, due to increases in future usage which will result from the Second City Crossing and major development proposals nearby in the City Centre. The stop represents an important destination gateway to the City Centre.

The proposed works do not require planning consent as they are deemed permitted development under the provisions of the Town and Country planning (General Permitted development Order) 1995, and a conditional Prior Approval has be granted. However, the viaduct upon which the platform is located is a listed building, and as such, listed building consent is required for all works which intrude into the fabric of the viaduct.

In November 2013, Transport for Greater Manchester secured Listed Building Consent for works associated with the provision of improvements to the Deansgate – Castlefield Metrolink tram stop. Included in the approved scheme was a stair tower and footbridge over the Rochdale Canal, attached to the viaduct, on the Whitworth Street West frontage, close to the junction with Albion Street. The stair tower is proposed to replace the existing stair tower which currently provides access to the tram stop located on top of the viaduct. At the opposite end of the viaduct, close to Deansgate, is an additional replacement stairtower, which also includes a lift to improve access for disabled people.

Since the development was granted consent, a review of the detailed design of the proposed replacement stairtower and bridge has been carried out, and a number of construction issues have been identified. A significant anchored connection into the listed viaduct would have been required to support the main span and lower end of the upper stair case. This would require extensive intrusive investigations and result in a large intrusive anchor plate being mounted on the face of the pier. In addition, the lower stair case significantly impacted upon the usable width of the footway on Whitworth Street West and the structure was inefficient in that the stairs and span across the canal were separate elements. The current application seeks consent for a revised design, which responds to these issues.

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2.0 Description Of Proposed Development

This application relates to the Metrolink stop at Deansgate Castlefield. The stop is located in an elevated position, set on a brick viaduct over Deansgate Locks on Whitworth Street west. The stop is currently accessed by a brick staircase at the Deansgate end of Whitworth Street West, by a steel stair tower at the Albion Street end of the viaduct, and by a footbridge which crosses Whitworth street West and links Deansgate railway station.

The detailed design of the new bridge and stairtower has been developed to improve its relationship with the existing listed viaduct. The design has three elements. It provides a flight of stairs which descends from platform level alongside the railway viaduct and is fixed into the face of the viaduct, a bridge which spans the canal horizontally (located above the lock gates to the listed Albion Mill Lock on the Rochdale Canal below), and, a staircase which descends above the towpath and then returns on itself to descend to street level alongside the parapet wall between the pavement and the canal towpath.

The proposed bridge deck would comprise steel beams and deck plate with a natural slate stone finish. It would have a single span across the canal of approximately 16m, and return stair flights connected by a landing cantilevered over the canal towpath with spans of approximately 5m and 6m. On the Whitworth Street West side of the canal supports would be in the form of rectangular ‘V’ shaped concrete columns and crosshead, supported on a buried foundation under the footpath. The underside of the structure is clad with coated steel, and architectural laminated toughened glass parapets are provided, which include handrails. The width of the footbridge between handrails is 1.8m.

The bridge would be lit by a single bespoke lighting column, and the location of the stair access on Whitworth Street would necessitate the loss of one street tree.

There are significant views of the viaduct from Deansgate, Albion Street and Whitworth Street West.

3.0 Consultations

Local Residents/Businesses

The planning application has been advertised as affecting the setting of a listed building. Site notices have been displayed and businesses and residents notified. Press notices have also been posted.

Individual letters of objection have been received from one local business and two nearby residents, raising the following issues:

The proposed structure is most unsympathetic to the character of the canal locks. It is an engineering solution which makes no concession to the heritage location in terms of form, siting and materials.

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The footbridge would be commercially harmful, due to the design and location of the footbridge. The structure would be elevated above the boardwalk serving the businesses in the railway arches. Those businesses, primarily nightclubs, make a substantial contribution to the economy, and the proposed footbridge, which runs between Sugar Buddha and the other nightclubs, will have an immediate impact in visually severing Sugar Buddha from the other clubs operating on the canalside, thereby adversely impacting on its trading potential.

The footbridge would be overbearing and cast shadow over the decking area used by Sugar Buddha, thereby reducing its potential to attract custom.

The design and materials are unsympathetic to the existing Deansgate Locks. The use of utilitarian concrete and the rectangular form are inappropriate against the mature brick and curved arches of the locks, particularly when viewed from the corner beside the First Street development.

The location of the bridge obscures the frontages to the bars, and should have provided a design which seeks to integrate the Metrolink Station, the locks and the First street development together in an integrated scheme.

The design is not innovative for a structure that will be highly visible to its neighbours and surroundings.

The location seems wrong, and would be better suited at the end of the locks where the current staircase is sited.

The stair design should have been carried down to canal level.

Head of Regulatory and Enforcement Services (Environmental Health) .

Recommended condition relating to hours of construction.

The Head of Neighbourhood Services (Highway Services)

No objection.

Greater Manchester Ecology Unit No comments have been received.

Greater Manchester Archaeological Advisory Service Recommends that no archaeological requirements are necessary.

Greater Manchester Police (Design for Security) No comments have been received.

Canal and River Trust

It is essential that the structure is not detrimental to the amenity of boaters or towpath users, and concern is expressed that the design of the structure does not fully

69 Manchester City Council Item 10 Planning and Highways Committee 22 January 2015 recognise the significance of the location and context of the Grade ll Listed Locks 90 and 91 and adjacent viaduct. Greater elegance and interest could be developed in the structure with more appropriate materials and finishes to connect to the canal corridor and streetscape. The use of yellow handrails is not appropriate.

4.0 Issues

The proposed stair tower and bridge is permitted development, as stated above, and as such, the principle of the structure is established. A previous Listed Building Consent has also confirmed the design approach which seeks to provide a modern addition to the listed viaduct, as part of a wider scheme of bespoke improvements and enhancements to the Metrolink stop at Deansgate Castlefield.

The main issues for consideration therefore relate to the acceptability of the proposals in terms of the impact on the character and visual appearance of the listed viaduct.

Relevant National Policy

The National Planning Policy Framework set out the Government’s planning policies for England and how these are expected to apply. The NPPF seeks to achieve sustainable development and the Government states that sustainable development has an economic, social and environmental role. Paragraphs 11, 12, 13 and 14 of the NPPF outline a “presumption in favour of sustainable development”. This means approving development, without delay, where it accords with the development plan. Paragraph 12 states that:

“Proposed development that accords with an up-to-date Local Plan should be approved and proposed development that conflicts should be refused unless other material considerations indicate otherwise.”

The proposed development is considered to be consistent with Sections 2(Ensuring the Vitality of Town Centres), 4(Promoting Sustainable Transport), 7(Requiring Good Design) and 12 (Conserving and Enhancing the Historic Environment) of the NPPF.

The structure would contribute to the economy by improving access to employment, housing and other City Centre uses, and has been subject to significant design consideration, consultation and evolution. It would be of a high quality and would raise the standard of design more generally in the area. It would not have an adverse effect on the character or appearance of the adjoining listed viaduct. In addition, Paragraph 131 advises that in determining planning applications, local planning authorities should take account of the desirability of new development making a positive contribution to local character and distinctiveness.

Relevant Local Policies

Core Strategy

The adopted Core Strategy contains a number of Strategic Spatial Objectives that form the basis of the policies contained therein, as follows:

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Policy SP 1 (Spatial Principles) - This sets out the key special principles which will guide the strategy. Development in all parts of the City should:

“Make a positive contribution to neighbourhoods of choice including:  creating well designed places that enhance or create character.  making a positive contribution to the health, safety and wellbeing of residents  considering the needs of all members of the community regardless of .....disability  protect and enhance the built and natural environment”

Policy CC9. Design and Heritage - The proposed new building would have a high standard of design appropriate to its context and the character of the area and it would not have an adverse impact on the setting of the adjacent listed viaduct.

Policy EN1. Design Principles and Strategic Character Areas - The proposal involves a good quality design, and would result in development which would enhance the character of this area and the overall image of Manchester. The design responds positively at street level and would create an architectural feature in a prominent location.

Policy EN3 Heritage. It is considered that the quality and design of the proposed structure would be acceptable in terms of the character and appearance of the listed viaduct and surrounding area.

Policy DM 1- Development Management - This sets out the requirements for developments and outlines a range of general issues that all development should have regard to. Of these, the following issues are or relevance to this proposal: o Appropriate siting, layout, scale, form, massing, materials and detail; o Design for health; o Impact on the surrounding areas in terms of the design, scale and appearance of the proposed development; o That development should have regard to the character of the surrounding area; o Effects on amenity, including privacy, light, noise, vibration, air quality and road safety and traffic generation; o Accessibility to buildings, neighbourhoods and sustainable transport modes; o Impact on safety, crime prevention and health; adequacy of internal accommodation , external amenity space, refuse storage and collection, vehicular access and car parking; and o Impact on biodiversity, landscape, archaeological or built heritage, green Infrastructure and flood risk and drainage.

Saved UDP Policies

The relevant policies which relate to the assessment of these proposals are saved policies RC4 (Environment), and DC19.1 (Listed Buildings) contained with the Unitary Development Plan for the City of Manchester, Policy DM1 (Development

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Management) of the Manchester Core Strategy and section 12 (Conserving and Enhancing the Historic Environment) of the National Planning Policy Framework.

Comments on proposal

The proposal would contribute to the regeneration of the City Centre and have an acceptable relationship to the listed viaduct, which it adjoins.

The design approach adopted, which provides and exciting modern feature, is part of a wider package of proposals which enhance the viaduct with modern interventions and architectural elements.

In addition, the proposal supports the transport and sustainability agendas.

In relation to the objections received, the design and appearance of the proposal are considered to be acceptable, and would support the wider improvements and enhancements to this important gateway to the City Centre.

Access to all units along the boardwalk outside the commercial units on Deansgate Locks would be maintained. Increased use of the Metrolink Stop, enabled by these proposals, is also likely to increase activity in the area, which may well will generate additional custom.

In relation to accessibility and inclusive design, the wider proposals include a new lift at the Deansgate end of the viaduct, which would improve provision for disabled people. The use of yellow handrails would also support the safe use of the stair tower.

5.0 Conclusion

The principle of the proposed Metrolink access tower and bridge has been established, and is considered to be fully in accordance with the national and local planning policies referred to above. The modern approach to design and materials would create an acceptable element to the listed structure and would reflect the approach adopted elsewhere as part of the upgrade and improvement to the tram stop and its environment. As such, this application is recommended for approval, subject to conditions.

6.0 Legislative Requirements

Section 16 (2) of the Planning (Listed Building and Conservation Areas) Act 1990 (the "Listed Building Act") provides that "in considering whether to grant listed building consent for any works to a listed building, the local planning authority or the Secretary of State shall have special regard to the desirability of preserving the building or its setting or any features of special architectural or historic interest which it possesses"

Section 66 of the Listed Building Act provides that in considering whether to grant planning permission for development that affects a listed building or its setting the local planning authority shall have special regard to the desirability of preserving the

72 Manchester City Council Item 10 Planning and Highways Committee 22 January 2015 building or its setting or any features of special architectural or historic interest which it possesses.

Section 72 of the Listed Building Act provides that in the exercise of the power to determine planning applications for land or buildings within a conservation area, special attention shall be paid to the desirability of preserving or enhancing the character or appearance of that area.

S149 Equality Act 2010 provides that in the exercise of all its functions the Council must have regard to the need to eliminate discrimination, advance equality of opportunity and foster good relations between person who share a relevant protected characteristic and those who do not. This includes taking steps to minimise disadvantages suffered by persons sharing a protect characteristic and to encourage that group to participate in public life. Disability is a protected characteristic.

S17 Crime and Disorder Act 1998 provides that in the exercise of its planning functions the Council shall have regard to the need to do all that it reasonably can to prevent crime and disorder.

Human Rights Act 1998 considerations

This application needs to be considered against the provisions of the Human Rights Act 1998. Under Article 6, the applicants (and those third parties, including local residents, who have made representations) have a right to a fair hearing and to this end the local planning authority must give full consideration to their comments.

Protocol 1 Article 1, and Article 8 where appropriate, confer(s) a right of respect for a person’s home, other land and business assets. In taking account of all material considerations, including Council policy as set out in the Core Strategy and saved polices of the Unitary Development Plan, the Head of Planning has concluded that some rights conferred by these articles on the applicant(s)/objector(s)/resident(s) and other occupiers and owners of nearby land that might be affected may be interfered with but that that interference is in accordance with the law and justified by being in the public interest and on the basis of the planning merits of the development proposal. She believes that any restriction on these rights posed by the of the application is proportionate to the wider benefits of approval and that such a decision falls within the margin of discretion afforded to the Council under the Town and Country Planning Acts.

7. Recommendation Approve

Article 31 Declaration

In assessing the merits of a planning application officers will seek to work with the applicant in a positive and proactive manner to seek solutions to problems arising in relation to dealing with the planning application. There were no such issues that needed to be dealt with in respect of this application.

Conditions to be attached to the decision

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1) The development must be begun not later than the expiration of three years beginning with the date of this permission.

Reason - Required to be imposed pursuant to Section 18 of the Planning (Listed Buildings and Conservation Areas) Act 1990.

2) The development hereby approved shall be carried out in accordance with the following drawings and documents:

Site Edged Red date stamped 25th November by City Council as local planning authority

Schedule of Finishes date stamped 25th November 2014 by City Council as local planning authority

Technical Note Removal of Trees for Whitworth Street West Access Enhancement dated 14th December 2014 by City Council as local planning authority

Design and Access Statement date stamped 1st October 2014 by City Council as local planning authority

Addendum Heritage Statement date stamped 1st October 2014 by City Council as local planning authority

Plans and Documents:

MPT3B-DCF-01-WDE-518 RevD03 MPT3B-DCF-01-KDP-514 RevD02 MPT3B-DCF-01-KDP-513 RevD04 MPT3B-DCF-01-WDD-518 RevD01 MPT3B-DCF-01-WDD-518 RevD03 MPT3B-DCF-01-WDD-519 RevD01 MPT3B-DCF-01-WDD-520 RevD01 MPT3B-DCF-01-WDD-521 RevD01 MPT3B-DCF-01-WDD-516 RevD01 MPT3B-DCF-01-WDD-522 RevD02 MPT3B-DCF-01-WDC-505 RevD04 MPT3B-DCF-01-WDP-505 RevD04 MPT3B-DCF-01-WDD-506 RevD03 MPT3B-DCF-01-WDD-505 RevD03 MPT3B-DCF-01-WDD-510 RevD02 MPT3B-DCF-01-WDD-511 RevD02 MPT3B-DCF-01-WDD-512 RevD02 MPT3B-DCF-01-WDD-513 RevD02 MPT3B-DCF-01-WDD-508 RevD02

Reason - To ensure that the development is carried out in accordance with the approved plans, pursuant to policy DM1 (Development Management) of the Core Strategy.

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3) No development that is hereby approved shall commence unless and until samples and specifications of all materials to be used on all external elevations of the development along with jointing and fixing details have been submitted to and approved in writing by the City Council as local planning authority.

Reason : To ensure that the appearance of the development is acceptable to the City Council as local planning authority in the interests of the visual amenity of the area within which the site is located, as specified in policies SP1 and DM1 of the Core Strategy.

4) Construction/demolition works shall be confined to the following hours unless otherwise agreed in writing by the City Council as local planning authority:

 Monday - Friday*: 7.30am - 6pm  Saturday*: 8.30am - 2pm  Sunday / Bank holidays: No work

*Workforce may arrive on site 30 minutes prior but no working outside these times, unless changed by prior agreement. Noise to be kept to a minimum in the first hour.

Reason - To safeguard the amenities of the occupiers of nearby residential accommodation once the development is completed.

Relevant Contact Officer : David Brettell Telephone number : 0161 234 4556 Email : [email protected]

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