HEAD OF DEVELOPMENT SERVICES DEVELOPMENT, ENVIRONMENT AND LEISURE
REPORT TO CABINET 27TH OCTOBER 2004
UPDATE ON PROPOSALS TO STIMULATE REGENERATION IN THE UPPER DON VALLEY
1.0 PURPOSE OF THE REPORT
1.1 In February 2003, Civic Regeneration produced a multi-disciplinary masterplan on the Upper Don Valley and identified a significant number of proposals which could contribute to the Valley’s regeneration. Cabinet endorsed the Civic Regeneration proposals in a report on 12 November 2003.
1.2 The purpose of this report is twofold. Firstly, to update Cabinet members on consultation and implementation issues in relation to the above Upper Don Masterplan proposals. Secondly, to describe a programme of further actions needed to achieve a successful economic, environmental and social regeneration in the Upper Don.
2.0 INTRODUCTION
2.1 After a period of industrial re-structuring, Sheffield is emerging as a leading location for quality inward investment in office, industrial, retail and residential activities. Various studies have indicated that there is at present a deficit in the provision of suitable accommodation in virtually all categories of accommodation.
2.2 In addition to the City Centre, Sheffield has a number of significant development areas, which are known as the four Strategic Regeneration Areas (SRAs). These are: the Lower Don Valley, the Airport Business Park, Central Riverside and the Upper Don Valley. These areas have significant potential to provide improved and additional business and industrial use accommodation.
2.3 In order to address economic development at a city wide level, Creative Sheffield was launched earlier this month. Based on the model of an Urban Regeneration Company, unlike the existing Sheffield One which only services the City Centre, the new organisation will work across the whole city. A key role for the new agency – which is central to the future of the Upper Don – will be the promotion of the city’s economic sites and infrastructure. Creative Sheffield is expected to be crucial in creating thousands of jobs in the Upper Don, as well as in the other three Strategic Regeneration Areas. The launch of Creative Sheffield is therefore very timely given the real opportunities for transformational change in the Upper Don. 2.4 The Upper Don Valley provides a major opportunity for the city to grow and to share the economic benefits of a more prosperous city centre with other parts of Sheffield. Although levels of interest in the Upper Don Valley from developers have increased in recent years, land values and low rental levels are still holding back development.
2.5 As explained in the previous Upper Don report to Cabinet of November 2003, a number of policy and strategic developments are having an impact on the Upper Don. Of particular relevance are the recommendations made in the Upper Don Masterplan, the review of the Unitary Development Plan into the Sheffield Development Framework and the “Upper Don Valley Transport Study” which are addressed in subsequent sections of this report.
2.6 The Upper Don is at present a focus for a great deal of targeted regeneration efforts by a range of statutory organisations, community and charitable status organisations and private developers. Various departments at the City Council are working together with external partners to ensure that when the transformational change takes place in the Upper Don, as far as possible all the aspirations of the partners involved are fulfilled. The Upper Don is adjoined by heavily populated neighbourhoods which are the focus of the City Council’s Successful Neighbourhoods Strategy.
2.7 Sheffield City Council promotes economic and social regeneration that goes hand in hand with the regeneration of the natural environment. In particular, attention needs to be given to the Upper River Don, which remains an underused and to some extend, abused asset. A combination of major private developments and publicly funded initiatives brings a unique opportunity to make much more of the river. The flat topography of the area also gives us the opportunity to effectively link business, education and leisure development opportunities with walking and cycling initiatives, hopefully delivering better facilities for all. Linked to the Waterways Strategy Group, Sheffield City Council has established a ‘Upper Don Valley Cycling and Pedestrian Officers’ Group to support and deliver quality cycling and pedestrian access and routes in the UDV by using the River Don as a central location. A detailed map of the proposed routes has recently been produced.
2.8 The Upper Don Masterplan, produced by Civic Regeneration for Yorkshire Forward and Sheffield City Council in February 2003, divided the Upper Don Valley into three distinct sub-areas. Briefly, their proposals were:
Claywheels Lane – this part retains its industrial focus and a competitive business environment is created; Upper Don Urban Quarter – there are three main strands to this proposal. Firstly, to establish a vibrant education and training cluster focused on Sheffield College’s new campus at Livesey Street. Secondly, the consolidation of a leisure cluster in the vicinity of Livesey Street. Finally, the introduction of housing between Livesey Street and Rutland Road; Parkwood Springs – creating a substantially enlarged Ski Village and Outdoor leisure facility.
2.9 A more detailed description of the proposals for each of these three areas can be found in Appendix 1.
3.0 CONSULTATION ON UPPER DON MASTERPLAN AND RESPONSES RECEIVED
3.1 Following the Cabinet’s endorsement of the Upper Don Valley Masterplan in November 2003, an extensive consultation strategy was launched by Sheffield City Council. Key partners and stakeholders were consulted as part of this process between December 2003 and May 2004.
Key points raised during this consultation were: in principle support for housing on brownfield sites; the need for new employment opportunities, particularly for local people; the need to improve accessibility in the Valley; the value of the rivers Don and Loxley and other linkages as green routes.
3.2 Appendix 2 provides a fuller account of comments made during consultation on the Masterplan.
4. 0 PROGRESS TOWARDS REGENERATING THE UPPER DON VALLEY
4.1 The following section outlines the work which is planned or is currently underway since the publication of the Upper Don Masterplan which directly impacts on the regeneration of the Upper Don Valley.
CURRENT DEVELOPMENT PROPOSALS a) Claywheels Lane
4.2 The Upper Don Valley Masterplan recommended that Claywheels Lane retain its industrial focus. In accordance with this purpose, Sheffield City Council is working with a newly formed company called Upper Don Renaissance to achieve this objective.
4.3 Upper Don Renaissance (UDR) are proposing the development of the whole of the Claywheels Industrial Estate between 2005-2010. The company has already secured ownership of the former UCAR site. Given the access, clearance and land contamination issues in the Claywheels Estate, UDR have identified a ‘funding gap’ to bring the site forward of about £5m. UDR hope to access this amount through Objective 1. The developers submitted a Business Plan to the Objective 1 Programme Directorate at the end of June. UDR have been invited to submit an Integrated Business Plan and an Application for ERDF support before December this year. In parallel to this process, the City Council will in due course receive a planning application for this development. 4.4 Because the Objective 1 funded expenditure has to be incurred by December 2008, UDR have identified two main phases in the development of Claywheels Lane. Phase 1 will be the development of the UCAR site (2005-2008), with a total cost of approximately £30m, of which Objective 1 would, if UDR’s bid is successful fund £5m. Phase 2 (2009-2010) will see the development of the rest of the site. As part of Phase 1, UDR propose to do the following:
Infrastructure: Improvements to the road transport network, including a new bridge from Middlewood Road North to Beeley Wood Road and associated road improvements; To rejuvenate the UCAR site estate infrastructure which is not conducive to modern industry and more specifically create a loop road through the UCAR site; Creation of a new footbridge across the River Don; Environmental improvements including the creation of new riverside walk; Provision of new primary power substation and distribution network.
Development: Transform the Claywheels Industrial Estate into the Beeley Wood Technology Park with the construction of 41,000 m2 of refurbished and new industrial and business units with potential for a further 40,000 m2 of development.
Linked improvements: Provision for public transport improvements by re-routing services via the new road bridge connecting Middlewood Road North to Claywheels Lane/ Penistone Road; Improved access to the supertram terminal interchange.
4.5 It is considered that Sheffield City Council should welcome these proposals as they will lead to a very positive improvement, physically and socially, in this part of the Upper Don. The Council should support the developers in accessing Objective 1 funding. It will do this by providing officers’ support in preparing the ERDF submission and also by ensuring that the project meets all social inclusion, employment and environmental requirements. We are currently helping UDR to co-ordinate a number of meetings with relevant SCC staff and other relevant community and external organisations in order to meet necessary funding criteria. b) Parkwood Springs
4.6 MENTA, which is part of Upper Don Renaissance and owns the Ski Village, has ambitious plans for the extension of the leisure offer at the Ski Village. In addition, it is investigating the possibility of acquiring a number of sites in the vicinity of the Ski Village in order to redevelop them and to revitalise its immediate neighbourhood. The company has formed a partnership with a development company specialising in leisure operations under the name of Parkwood Springs Development Limited. It is currently preparing a master plan for the site. 4.7 The development of the Sheffield Ski Village will involve the following works:
X-Mountain Retention of the existing dry ski slope and associated facilities; Construction of an indoor (x-mountain) ski slope adjacent to the existing dry slope; Expansion of the existing ski village including the provision of themed food and retail units and up to 550 car parking facilities; The developers already have planning permission for the development of an Adventure Zone, which will provide alternative activities for younger children.
Live/ Work Village Construction of an associated live-work village.
Cable Car Construction of a cable car to improve public access to this recreational area, running from a base station adjacent to the Sheffield supertram to the ski village and the top of the dry ski slope. The route of the cable car crosses the River Don and railway line. The top station will be constructed in the vicinity of the existing helicopter landing pad.
Highway works Highway improvement works including a new junction between Rutland Road and Oakham Road are also planned. Oakham Drive will therefore become the main vehicular entrance to the ski village.
4.8 Overall, officers consider that investment and the enhancement of the Ski Village, as proposed by the Parkwood Springs Development Limited, is to be welcomed. The proposals would also seem acceptable in principle in planning and highway terms. However, although the developers ar eenthusiastic, the issue of the size of the ‘funding gap’ is a cause for concern. Possible sources of funding could include Yorkshire Forward’s Investment Plan, LTP and Objective 1. The developers are looking at all the figures in detail and will report back to the Council.
4.9 The Parkwood Springs Steering Group produced in June 2003 the “Parkwood Springs Community Vision – Regeneration Action Plan” Document. This document offers very imaginative uses for the whole Parkwood Springs area, which need to be explored further and which will form part of the future study on the Upper Don (see ‘The Way Forward’, section 5).
4.10 Finally, it is also worthwhile mentioning that whilst the Council has not received as yet any planning applications for the above works (except for the Adventure Zone), these are expected to be lodged within the next 2 months. c) Upper Don Urban Quarter
Education and Training Cluster 4.11 The development of Sheffield College at Livesey Street should act as a significant catalyst to the regeneration of this part of the Upper Don Valley. The new College, which will have capacity for 12,000 students, is due to open in the Spring of 2005.
4.12 No other development is currently proposed as part of the cluster approach to the Livesey Street/ Penistone Road gateway. The College owns some land adjacent to the College but no proposals have come forward regarding its use at present.
Leisure Cluster 4.13 No proposals have come forward regarding this element of the Civic Regeneration report.
4.14 At present, the existing leisure operations do not seem to maximise the potential of the location. The Greyhound Track/ Casino’s Car Park fronting onto Penistone Road, presents an ideal opportunity to expand the leisure offer and this option should be further explored. However, both the Greyhound and the Casino will need to be closely involved as they would need replacement parking and also, they may not want another development hiding their visibility from the main road.
4.15 This idea needs to be further investigated, involving land owners and property agents. It is suggested that this is done via a new study into the Upper Don outlined in the ‘The Way Forward’, section 5.
Mixed-Use area – Neepsend Lane and Club Mill Road 4.16 There are no specific development proposals for this suggested use of the Neepsend area, although recent discussions with representatives of Doncasters (who have a considerable land interest in the middle of this area) indicate their intention to consolidate business activity on their site. Officers have welcomed the proposal and offered the firm assistance in realising their investment proposals. A particular issue is the need to improve the current vehicular access which is via a sub-standard bridge. The creation of a riverside walk is gaining momentum through the work of the Sheffield Waterways Strategy and the work of the Upper Don Trust and Pedal Pushers. Officers are also working on mapping ‘feeder routes’ into the proposed riverside walk from the highly populated areas of Hillsborough, Owlerton and Southey Green and Burngreave. All in all, it is a very exciting development which could open up the River Don for public enjoyment and add alternative transport routes for those walking or travelling by bicycle.
4.17 The proposal to introduce new uses into the Neepsend Lane and Club Mill Road areas has some merits as property requirements continue to change. In the case of Neepsend Lane, it could also be argued that if the proposed plans for the Ski Village go ahead (as described above), there may be a long term possibility to transform Neepsend Lane into a mixed-use area. However, any redevelopment would require extensive de-contamination, land assembly, business relocation and significant new infrastructure. This would in turn require considerable involvement from Sheffield City Council.
4.18 The case for introducing mixed-use in the Clubmill Road is more complex. Given the tipped nature of much of this area, it is doubtful whether this is a real option for this part of the Upper Don in the foreseeable future.
TRANSPORTATION ISSUES
4.20 In November 2003, Ove Arup & Partners Ltd were appointed (following a competitive tendering process) to identify and address transportation issues facing local communities in accessing employment sites within the UDV. The “Plan 4 Travel in the Upper Don Valley” (May 2004) was funded by Renaissance South Yorkshire and the focus was Claywheels Lane. In essence the study had three main purposes: To identify sustainable access solutions in the Upper Don Valley; To ensure development sites are made attractive and local jobs are made accessible; To ensure the integrity of the A61 as a key through route to the City Centre is not compromised by linking to other proposals in the area, particularly the Better Buses for North of Sheffield Project.
4.21 Whilst Claywheels Lane (and in particular the UCAR site) are envisaged as the potential catalyst for regeneration, the report considers the whole Upper Don Valley. A significant element of the proposals is based on major infrastructure works and link improvements. Objective One, a Department of Transport/Local Transport Plan (LTP) Major Schemes Bid and developer contributions are potential funding sources that deliver the transformation of a regenerated Upper Don Valley.
4.22 Implementation of some or all of the integrated package of transport proposals for the Upper Don Valley presented by Arups is key to linking the communities to jobs in a manageable and sustainable way and maximising development opportunities in the process. Particularly for Claywheels Lane, the current lack of passing traffic and poor junction configuration onto Penistone Road North (which inhibit bus penetration, cycling and walking) are seen as significant factors behind the absence till late of developer interest and activity in the area. If the UCAR site on Claywheels Lane was the first to become the subject of a planning application, the Arups’ report presents a range/package of measures which can be tailored to also bring on stream other business and industry sites along Claywheels Lane. The challenge ahead will be to harness the available funding streams (within some fairly tight timescales) to achieve the target of connecting the employment opportunities with the local communities. The Arups' report makes recommendation for all three Sub Areas: Claywheels Lane; Neepsend; and Parkwood Springs. 4.23 The recommendations also take into account the “North Sheffield Better Buses Project”. This project was reported to Cabinet on 10th December 2003 and it recommended consideration of a major transport improvement project for Penistone Road. This has resulted in its inclusion in the LTP funding for a South Yorkshire wide programme of bus priority measures. This will provide priority public transport access to the City Centre – and the major potential of Claywheels Lane. At the Herries Road, Leppings Lane junction itself, the recommended proposal is to provide bus priority onto and from the Penistone Road bus lanes on each of the arms of the roundabout by signal controls.
4.24 Appendix 4 contains the Key Recommendations of the Transportation Study Undertaken by Ove Arup & Partners Ltd
REVIEW OF THE UNITARY DEVELOPMENT PLAN: PREPARATION OF THE SHEFFIELD DEVELOPMENT FRAMEWORK AND OPPORTUNITIES FOR THE UPPER DON
Background:
4.25 Members will be aware that work is well underway for the preparation of the Sheffield Development Framework (SDF). The SDF will be the City’s portfolio of local development documents, collectively covering the whole of Sheffield except the area in the Peak Park. Once adopted, the SDF will replace the Unitary Development Plan and will deliver the spatial planning strategy for the city.
4.26 The documents in the SDF will be -
City Plan: core strategy and policies City Sites identifying specific site allocations and managing the phasing policies of the City Plan Proposals Map Statement of Community Involvement Supplementary Planning Documents for a range of topics Area Action Plans for selected parts of the city.
Implications for the Upper Don
4.27 It is proposed that policies be included in the LDF for the three distinct areas that make up the Upper Don as defined in the original Masterplan (Claywheels Lane, ‘Urban Quarter’ and Parkwood Springs) and that more detailed Action Areas and Plans are drawn up accordingly in the new Sheffield Development Framework. This recognition will formalise the need for regeneration activities in these areas and also will focus on implementing these. I will be in a position to report about these in early 2006.
5.0 THE WAY FORWARD
5.1 Further reports to Cabinet will be made in the future on the implementation of the specific proposals identified in Section 4 of this report namely bids to fund the transport proposals (para. 4.26) and preparation of the Sheffield Development Framework (para.4.29). In addition, there are three areas of work that we believe need to be pursued to achieve a robust framework for delivery in the Upper Don. These are:
i) to kick start Upper Don Valley Study II;
ii) to undertake the formation of an Upper Don Task Group/ Upper Don Partnership Board to oversee the implementation of activity in the Upper Don under the auspices of Creative Sheffield and
iii) to undertake the process of selecting preferred development partners to carry the development work in the Upper Don.
UPPER DON STUDY II: REFINING THE VISION AND DELIVERY OPTIONS
Background to the proposed study
5.2 It is clear that an element of public intervention is required to act as a catalyst for the area and to pump-prime the property market. This intervention should be seen as an investment which will produce significant benefits in terms of terms of increased land values, rental levels and economic activity.
5.3 Levels of interest in the Upper Don Valley from developers and investors have increased in recent years as the full potential of the area is realised. The development proposal for the Upper Don area covers in excess of 62 hectares of brownfield land, which will, as part of a mixed use scheme, be targeted for commercial renewal, characterised by a sophisticated use of tourism, advanced manufacturing, leisure and residential uses to create a step change in an area dogged by market failure.
5.4 It is estimated that the scheme has within it the capacity to generate in excess of 10,000 new jobs in the sub-region and act as focal point for economic restructuring through indigenous and inward investment programmes. Moreover, in the particular context of the regional economy, the area has both the capacity and flexibility to provide a focus of cluster development and as a platform for community targeted economic development programmes.
Objectives of the proposed study
5.5 Broad aims of the study:
1. To achieve successful economic, social and environmental regeneration of the Upper Don Valley and 2. To examine the feasibility and associated risk, economic impact, funding requirements and possible delivery mechanisms for the developments outlined in the Upper Don Valley Study (Civic Regeneration, February 2003) in order to achieve the above regeneration goals.
5.6 Specific objectives and proposed timetable for the study are available in
Appendix 3.
UPPER DON TASK GROUP/ PARTNERSHIP BOARD AND DEVELOPMENT PARTNER
5.7 In order to drive forward transformational change in the Upper Don Valley a dedicated Task Group is proposed. The Task Group will be charged with promoting:
(a) the creation of a new mixed use area at Neepsend, north of Rutland Road and a new educational/leisure cluster around Livesey Street; (b) a radical improvement of the environment and leisure offer over the whole of Parkwood Springs – including Sheffield Ski Village and informal recreation opportunities/ landscape enhancement works over much of the rest of the area, and accommodating and/or consolidating waste disposal activity at Douglas Road; (c) major new investment in economic activities in the Claywheels Lane area; (d) significant improvement to the built and green environment and sense of place throughout the valley, exploiting its historic and natural character, not least along the River Don & the Parkwood Springs ridgeline; (e) Major improvement to accessibility in the valley including:
i) a bridge crossing from Middlewood Road North to Beeley Wood Lane/Claywheels Lane; ii) significant improvements to the junction of Penistone Road North and Claywheels Lane; iii) access to Parkwood Springs and the Sheffield Ski Village via Oakham Drive; iv) the creation of riverside and ridgeline walkways and v) other accessibility and public transport improvements.
5.8 The DEL Task Group led from Development Services, will provide the focus for this regenerative initiative but would, as necessary, draw on contributions from other Directorates and agencies outside the City Council.
5.9 A total annual budget of £250k is likely to be required to fund the core Task Group. In addition to this core team, resources would, as necessary, be drawn from elsewhere in DEL and the City Council – in particular transportation and development control officers in Development Services, development officers in Parks Woodlands and Countryside, and waste disposal officers in Environmental and Regulatory Services. 5.10 The Task Group would need to work with key partners both in the development and the delivery of the Upper Don’s regeneration including Groundwork Trust, Sheffield Wildlife Trust, Onyx, Sheffield Ski Village and other private sector developers, Sheffield College and local community fora.
5.11 It is likely that the Task Group would be funded from a number of sources. Potential funds include Local Public Service Agreement, the Objective One Programme, Yorkshire Forward’s Investment Plan, SOAR, BNDFC, capital receipts, business rates, Groundwork Trust, the Local Transport Plan and increased receipt from the ski village.
5.12 It is proposed that the delivery of the transformation of the Upper Don is shaped by a Partnership Board which meets at least quarterly, is chaired by the Cabinet Member for Economic Regeneration and Planning Policy (or his nominee) and which works in genuine partnership to champion and ensure delivery of the overall vision for the valley.
5.13 It is proposed that the composition of the Upper Don Partnership Board is determined in conjunction with the Chair of the Board. It is ennvisaged that the Chamber of Commerce, Sheffield College, the Groundwork Trust, local area regeneration boards and local community forums would be represented on it. It is also anticipated that the lead Area Development Framework Manager would be a member to ensure complementarity with the Successful Neighbourhoods agenda. It is proposed that the Partnership Board would report directly to the Board of Creative Sheffield.
5.14 Finally, SCC believes it is essential to engage with a private sector development partner or partners in order to bring about the transformational change envisaged in an area dominated by private landowning interests. Such an approach has proved successful in other parts of the country and is a crucial part of the realisation of the New Retail Quarter in Sheffield City Centre. The partner, would, with the City Council, be charged with engaging with landowning interests in the area and other developers in the delivery of the land use changes already agreed by the City Council or proposed by consultants appointed to undertake the Upper Don Study II (see 5.1 above) and as agreed by the City Council's Cabinet. It is envisaged that securing a development partner will require an advertisement to be placed in the Official Journal of the European Union.
6.0 CONCLUSIONS
6.1 Significant progress is being made in bringing about transformational change in the Upper Don Valley. However, a great deal remains to be done. The Way Forward section above identifies a number of interrelated initiatives which will further advance positive change in this strategic regeneration area. This has the potential to make a significant contribution to the Council’s twin aims of transforming the fortunes of Sheffield’s economy and implementing its Successful Neighbourhoods Strategy. 7.0 FINANCIAL IMPLICATIONS
7.1 There are financial implications in the proposals identified in this report. Amongst these are to improve accessibility in the Upper Don, establish an Upper Don Task Group and produce a more detailed study into realising proposed changes in key areas of the valley. Funding support will be sought from a number of sources of which the Department of Transport, Yorkshire Forward, Renaissance South Yorkshire and the Objective One Programme Directorate are the most important. Cabinet will be kept informed of progress in securing funding for these initiatives in due course.
8.0 EQUAL OPPORTUNITIES IMPLICATIONS
8.1 There are no equal opportunity implications resulting directly from this report.
9.0 ENVIRONMENTAL IMPLICATIONS
9.1 Proposals to enhance access to the banks of the Don and Loxley and improve the environment of Parkwood Springs, will make a major contribution to creating a better environment in the valley.
10.0 COMMUNITY SAFETY IMPLICATIONS
10.1 There are no community safety implications resulting directly from this report. Community safety will need to be fully addressed as part of the roll out of development proposals in the valley.
11.0 HUMAN RIGHTS IMPLICATIONS
11.1 There are no human rights implications resulting from this report.
12.0 RECOMMENDATIONS
12.1 Cabinet is recommended to: (i) welcome the progress being made in bringing forward the regeneration of the Upper Don Valley;
(ii) welcome the contribution transformational changes in the valley would make towards achieving the objectives of Creative Sheffield;
(iii) endorse proposals to appoint consultants with Renaissance South Yorkshire to examine the detailed regeneration of the Claywheels Lane area and the Upper Don Urban Quarter;
(iv) request the Executive Director, DEL to establish a Task Force to drive forward regeneration of the Valley; (v) request the Executive Director, DEL, in consultation with the Cabinet Member for Economic Regeneration and Planning Policy, to establish a Partnership Board to oversee the work of the Upper Don Valley Task Force and endorse the proposal that the Partnership Board reports directly to the Board of Creative Sheffield;
(vi) authorise the Executive Director, DEL to secure a development partner for the City Council in order to secure early implementation of regeneration proposals in the valley;
(vi) request the Executive Director, DEL to report further progress on regeneration of the Upper Don Valley to Cabinet in due course.
David Curtis Head of Development Services 18 October, 2004 APPENDIX 1
THE UPPER DON VALLEY MASTERPLAN. AN ABSTRACT FROM THE REPORT TO CABINET ON 12 NOVEMBER 2003
In summary, Civic Regeneration Ltd made the following general conclusions for the UDV:
The development of vacant / underused sites could create a competitive business environment at Claywheels Lane, a vibrant leisure / educational cluster at Livesey Street, a mixed-use urban quarter between Livesey Street and Rutland Road and a substantially improved and enlarged Ski Village / Outdoor leisure facility at Parkwood Springs (incorporating the Parkwood Springs Landfill Tip when tipping has been completed).
A range of access improvements is required in order to make the valley more accessible and therefore more attractive to developers, employers and potential future residents.
The image of the valley could be significantly improved by developing underused sites, enhancing the public realm, providing design guidance, incorporating public art and landscaped areas and improving access.
Better, more co-ordinated management of the valley was required.
In order to report detailed proposals Civic Regeneration divided the UDV into three distinct areas:
Claywheels Lane, Upper Don Mixed Use Area and Parkwood Springs.
Each of the above areas is now discussed in turn. The key proposals for each area are discussed first, an officer assessment of them is then made and recommendations follow.
PROPOSALS FOR THE CLAYWHEELS LANE SUB-AREA
The Claywheels Lane (CWL) industrial estate contains approximately 27 hectares (65 acres) of land suitable for (re)development. Civic Regeneration Ltd recommended that the Claywheels Lane (CWL) Industrial Area should remain predominantly in business and industrial uses. However, to transform Claywheels Lane into a modern, vibrant industrial estate would require the following:- A) Development Opportunities
The (re)development of 27 hectares (65 acres) unused / underused sites:- UCAR, Hague Site, Jubilee Sports ground, Niagara Forge, CWL entrance, Penistone Road Triangle (To south of CWL industrial estate)
B) Access Improvements
Modifications to the junction at Claywheels Lane / Penistone Road North to allow all vehicle turning movements (At present vehicles heading south on Penistone Road North cannot turn right on to CWL). An improved junction layout and traffic signals at the Leppings Lane roundabout. A new road bridge crossing, linking the Park and Ride at Middlewood Road to Niagara Forge on CWL. (NB There are other locations that may be suitable for the river crossing for example from Middlewood Road to the UCAR site). A loop road through the redeveloped UCAR site. The re-opening of Wadsley Bridge railway station and reinstatement of passenger rail services should the Woodhead railway line be re-opened. The diversion of bus route(s) through the estate upon completion of the proposed bridge link (see above). A riverside walk along the banks of the River Don.
C) Image Improvements
A new high quality development at the junction of CWL and Penistone Road.
D) Management Improvements
Improvements to the basic infrastructure on the estate. The production of design guidelines The creation of an estate focus where smaller businesses and support services can be located.
PROPOSALS FOR THE UPPER DON URBAN QUARTER
The UDV, between Rutland Road and Livesey Street, is a predominantly industrial in character. However, there is a significant amount of derelict / underused land and numerous vacant / neglected buildings in this area. Due to the changing fortunes of industry generally, Civic Regeneration Ltd is of the opinion that new land uses must be introduced into the area in order to regenerate it comprehensively (see plan on next page). The most significant changes are as follows:-
The introduction of housing. The consolidation of a leisure cluster in the vicinity of Livesey Street. Possible uses for the proposed leisure cluster include city fringe restaurants, hotels, public houses, health and fitness, bowling and casinos.
The creation of an education and training cluster focused on Sheffield College’s new campus, which is to be developed at Livesey Street.
The following sections describe the general / initial improvements proposed by Civic Regeneration to transform the Upper Don Urban Quarter into a vibrant mixed-use area.
A) Development Opportunities
Civic Regeneration identified the following development opportunities in this section of the UDV:-
Greyhound Track / Casinos car park According to Civic Regeneration this prominent site should be developed for leisure use, with the car parking moved to a secondary location off the main road frontage. Rationalisation of land holdings by firms A number of existing industrial firms, which wish to rationalise their property requirements may be able to release land for development Neepsend Lane (from Rutland Road to Hillfoot Bridge) Land should be assembled and made available for mixed-use development. Livesey Street / Penistone Road Gateway High profile development should be promoted at this junction to create a focal point. Club Mill Road Land should be made available for mixed-use development Parkwood Road This site is identified as an early win opportunity.
B) Access Improvements
Modifications to the junction of Rutland Road / Penistone Road in order to allow all vehicle turning movements (subject to testing on the micro- simulation traffic model). Improvements to the junction of Livesey Street / Doncaster Lane. The upgrading of Club Mill Road and the bridge link to Livesey Street in order to create a new route parallel to Penistone Road. The re-alignment of Neepsend Lane to permit riverside development. The creation of a riverside walk along the River Don
C) Image Improvements
The promotion of good quality, high profile developments at gateways into the area from Penistone Road. PROPOSALS FOR PARKWOOD SPRINGS
Civic Regeneration accepted that private sector development proposals being worked up to enhance the facilities at Sheffield Ski Village (SSV) and to reclaim and re-utilise the Parkwood Springs landfill tip for outdoor recreation forest (It is a long-term aspiration to create this facility when all tipping operations have been completed), could act as a significant catalyst to the regeneration of the southern end of the UDV (see plan on next page). The following general / initial proposals were suggested by the consultants:-
A) Access Improvements
A new access to the SSV, via Oakham Drive, is considered to be essential. Cross-valley pedestrian routes need improving with enhanced crossings over the railway, river and Penistone Road being incorporated.
B) Image Improvements
Rutland Road (between Penistone Road and Oakham Drive) requires improvements to lighting, signage, building frontages / appearance. A Public Art strategy. APPENDIX 2
CONSULTATION ON UPPER DON MASTERPLAN: RESPONSES RECEIVED FROM KEY STAKEHOLDERS a) Internal consultation within the City Council
SCC planning and transportation officers were consulted on the physical proposals of the Masterplan. Transport issues are key for the development of the area. Sheffield City Council secured £40,000 of Single Pot funding to undertake a detailed transport assessment in the Upper Don Valley (UDV). The final study was presented by Arups to SCC in May this year. Given the importance of the recommendations of this report for the development of the UDV, a separate section of this report will deal with these issues in detail.
The Planning Department welcomed the report. Its strongest views were about the plans for the “Upper Don Urban Quarter”, the mixed use area. Current UDP policies would not allow housing to be built in this area. Additionally, any re- development will require extensive de-contamination, land assembly and business re-location, which would in turn require considerable involvement from Sheffield City Council. b) Meetings with four relevant Local Area Panels: Netherthorpe/ Hillsborough/ Walkley, Owlerton and Southey Green, North and Burngreave
Key outcomes of the consultation undertaken with the relevant area panels are:
Qualified support for brownfield housing Keen to maximise amenity value of the river and increase the leisure offer in the UDV Winn Gardens very popular housing area Keen to see passenger rail service in UDV The area needs to overcome transport and other infrastructure within the UDV Employment opportunities for local communities must be a priority c) Community regeneration organisations with an interest in the area were also consulted.
Amongst these are: Southey and Owlerton Area Renewal (SOAR), the Burton Street Project, Burngreave New Deal for Communities, the Netherthorpe and Upperthorpe Community Alliance (NUCA), Hillsborough Community Development Trust and Neepsend Forum.
The UDV is an area with a very active community involvement. The SOAR Partnership is particularly relevant. Key issues at the top of the community agenda in the UDV are: Interest in the promotion of green linkages Prioritise employment opportunities Development of local hubs in communities outside the study area There needs to be co-ordination and community involvement in the development of the implementation of the UDV strategy Close attention to land use and development of key sites Infrastructure links: much speculated new footbridge, community transport (local bus) project. Railway and Supertram might bring opportunities Particular interest in the development of an Upper Don Steering Group, which would include the Area Panels, SOAR and NUCA as community links The Parkwood Springs Community Vision Regeneration Action Plan (June 2003) highlights three key strand for development: jobs, environment and leisure. This report is important for the community and needs to be taken into account when ‘designing’ the final shape of the UDV d) Regional economic development, regeneration organisations and other relevant organisations with a special interest
Organisations consulted were: Sheffield 1, Sheffield First for Investment, Environment Agency, Sheffield Chamber of Commerce, Employers’ Forum, Hillsborough Town Centre Manager, Sheffield Primary Care Trust, Sheffield College, South Yorkshire Forest, Sheffield Wildlife Trust, Upper Don Valley Trail, Sheffield Wednesday Football Club, Hillsborough Leisure Centre, Owlerton Stadium, Napoleon’s Casino and Don Valley Railway Group. Key findings following consultation are:
Keen to ensure that the final strategy adopted complements their own activity Sheffield One was particularly supportive of Riverside Housing and Leisure Organisations offered qualified support for the development of employment sites Most organisations emphasized the importance of ensuring an attractive physical environment in the UDV, independently of the final use (housing, industrial, leisure, educational). e) Open Consultation Event on 7 May 2004
Sheffield City Council, in collaboration with the Employers Forum, organised a lunchtime presentation about regeneration and development in the UDV. This was a major event, which generated a lot of interest from existing businesses in the Upper Don Valley. It was chaired by Helen Jackson MP and included presentations by the City Council’s City Development Unit, the Hillsborough Town Centre Development Officer, Hillsborough Park Regeneration Team and Sheffield College. Sheffield College will open a £27m. Hillsborough College in early 2005, which will have a capacity for 12000 students. There were many comments received on the day. Of particular relevance are:
Participants welcomed the report and agreed on the three distinct sub- areas identified by the Masterplan A number of businesses expressed concerns over potential CPOs, relocation of certain types of businesses (such as existing manufacturing ones) A great deal of detailed transport and road infrastructure questions were raised (for example, Junction of Livesey Street and Penistone Road, traffic implications for the proposed bridge from Claywheels Lane to Middlewood Road) A number of businesses raised the question of potential public funding for improving business frontage and road surfaces Proposals at Neepsend presented the highest numbers of questions in terms of the balance between industrial/ commercial and residential development in this sub-area APPENDIX 3
UPPER DON STUDY II: REFINING THE VISION AND DELIVERY OPTIONS
Specific Objectives
1. To examine the value of the current development proposals at Claywheels Lane and Parkwood Springs in line with the proposals made by the Upper Don Valley Study of February 2003;
2. In consultation with key stakeholders, to further develop the UDV Study proposals for the Upper Don Urban Quarter – Education and Leisure Cluster by researching:
how a leisure and/or education and training cluster could be introduced into the vicinity of Livesey Street/Club Mill Road;
Identify and consult all major owners and occupiers within this area to gather their views on the viability and desirability of the proposal;
Undertake a detailed assessment of the property market in order to formulate a pragmatic assessment of the cluster proposals;
Identify buildings and structures of architectural or historical significance and assess their future role;
Assess the proposals made by the “Plan 4 Travel in the Upper Don” Report (ARUP, May 2003) and undertake any additional access/transportation work as required.
3. In consultation with key stakeholders, to further develop the UDV Study proposals for the UD Urban Quarter – Mixed use development between Livesey Street and Rutland Road by:
Investigating what new land uses could be introduced in the Upper Don Urban Quarter and suggest how this could be achieved in practice;
Identifying and consult all major owners and occupiers within this area to gather their views on the viability and desirability of the proposal;
Undertaking a detailed assessment of the property market in order to formulate a pragmatic assessment of the regeneration potential of the area;
Identifying buildings and structures of architectural or historical significance and assess their future role; Assessing the proposals made by the “Plan 4 Travel in the Upper Don” Report (ARUP, May 2003) and undertake any additional access/transportation work as required
Tendering Process
SCC is in discussions with RSY to agree as to who will manage the tendering process in order to appoint a consultant. Both SCC and RSY have extensive experience in doing this and we feel fully competent to take on this role.
Proposed Timetable
Sheffield City Council will be leading on the development of the new study. The initial timetable proposed, which has not been as yet agreed by all partners, is as follows:
Proposal submitted to RSY by SCC November 04 Brief agreed by all partners and funding secured December 04 Distribution of invitations to tender late December 04 Deadline for submission early February 05 Appointment of consultant mid February 05 Draft report end April 05 Final report end May 05 APPENDIX 4
KEY RECOMMENDATIONS FROM THE “PLAN FOR TRAVEL IN THE UPPER DON VALLEY” REPORT BY OVE ARUP & PARTNERS FOR SHEFFIELD CITY COUNCIL (MAY 2004)
The document endeavours to ensure that:
strategic traffic on north/south and east/west axes is still accommodated on primary routes; new and improved road links and junctions accommodate the increased traffic demand for access to employment sites in the valley bottom; public transport systems link the local communities to serve the valley bottom, with better co-ordination and integration throughout the study area; walking and cycling solutions are facilitated and encouraged.
We have broken down the Report’s key recommendations into different categories:
1. Infrastructure and environmental developments
A new vehicular link bridging over the River Don connecting Middlewood Road to Claywheels Lane, plus new junction arrangement with the A61. Such a scheme will offer strategic benefits such as relieve congestion “hot spots” at the Catch Bar Lane gyratory and at Leppings Lane roundabout and create a through route along Claywheels Lane;
New bridge: 6 locations have been considered for the bridge link location, with the preferred position being approximately 50 metres south of Stockarth Road. This location is based on Middlewood Road sight-lines, least impact on existing dwellings, and minimum bridge span;
Environmental enhancements along Claywheels Lane (maybe boulevarding) with parking controls enforced where necessary;
Removal of Leppings Lane roundabout and replacement by a series of signal-controlled junctions at Claywheels Lane, Leppings Lane and Herries Road South. The preliminary layout requires the least land-take of the 6 options considered and is compatible with the Better Buses Project;
The old industrial street pattern from Hillfoot Bridge and along Neepsend Lane have poor legibility/definition. There is a requirement for remodelling of junctions (currently vast expanses of carriageway) to enhance the pedestrian and cycle environment. Better street lighting is required; The Northern Inner Relief Road (NIRR) will have a positive impact on accessibility to Claywheels Lane;
Alternative access links to the Parkwood Springs development are required, particularly via Oakham Drive and Parkwood Road.
2. Public transport
Feasibility of railway stations for rail or tyre train type service at sites along the valley should be examined (which might be a long term solution);
Commercial bus services to divert from Middlewood Road over the new bridge and along Claywheels Lane. Extend community bus services currently operating within part of the study area throughout all local residential areas and into development sites;
Footbridge linking a Park and Ride site to Claywheels over the River Don;
Public transport penetration via Hillfoot Bridge and exiting via Oakham Drive at Rutland Road is recommended, linked to the new access to the Parkwood Springs Development. The proposed cable car would enhance cross-valley transport options (plugging into Supertram at Ash Street) and it is recommended for further analysis;
Transport interchanges will be crucial to provide focal points for the integrated transport options under consideration. Community hubs (within Netherthorpe and Upperthorpe Community Alliance, Burngreave New Deal for Communities, Southey and Owlerton Area Renewal) should provide locations for mini interchanges serving “through valley” and “cross valley” journeys by non-car modes;
The above interchange sites should be marketed as additional City Centre interchanges, and that the Upper Don Valley is recognised by public transport operators as an extension to the City Centre (not a separate lower priority entity);
Long-term aspiration is an express bus service leaving the A61 at Herries Road via a bus gate, going off-line and joining Club Mill Road at a proposed Owlerton Interchange. Owing to current difficulties with the alignment of the long term aspiration, the interim solution is to provide a service along the A61 via junction capacity improvements;
Park & Ride sites to be encouraged and the possible expansion of the existing site at the Middlewood tram terminus might be expanded;
Through ticketing should be encouraged. Within the next 6 years Upper Don Valley transport modes might be bus, tram, community bus, railway, cable car. The Yorcard Initiative is being developed to address this issue. 3. Travel plans
Employer Travel Plans should be conditioned with planning consent for new development;
Recommended Travel Awareness Measures to improve Sustainable Access are: employer travel plans, safe route to school and Education initiatives.
4. Cycling and walking
Improved pedestrian and cycle links to and along Claywheels Lane, including improved A61 crossing provision;
Network of high quality pedestrian and cycle links to be developed throughout the Upper Don Valley and environs, connecting with “hubs” and public transport interchanges. Secure cycle parking at interchanges to be provided;
Opening of the whole of the River Don corridor within the study area to provide a high quality pedestrian and cycle route is a major project, but would be a huge asset to the area, and would link many of the development sites in the valley.
5. Signage
Legibility and direction signing should be encouraged. Gateways to residential and employment areas should be enhanced to create strong identities. Route branding should be promoted.
The full Arups’ report (titled Plan 4 Travel in the Upper Don Valley) is on deposit in the Members Library.