Oxford Road Strategic Development Framework

MANCHESTER CITY COUNCIL REPORT FOR RESOLUTION

COMMITTEE EXECUTIVE

DATE 25 OCTOBER 2007

SUBJECT OXFORD ROAD STRATEGIC DEVELOPMENT FRAMEWORK

REPORT OF CHIEF EXECUTIVE ______

PURPOSE OF REPORT

To advise the Executive of the development of the Oxford Road Strategic Development Framework and Partnership, and to seek endorsement and support for the implementation of the initiative.

RECOMMENDATIONS

1. To note progress on the development of the Oxford Road initiative 2. To endorse the principles underpinning the Oxford Road Strategic Development Framework 3. To approve the City Council’s continuing involvement in the implementation of the Framework and in the partnership arrangements which will oversee this. 4. To agree to the disposal of a small area of Council owned land fronting London Road as part of the University of Manchester’s disposal strategy subject to appropriate terms and conditions being agreed. 5. To agree that the principles established in the marketing brief for the London Road site are used to assess and evaluate any proposals that come forward.

FINANCIAL CONSEQUENCES FOR THE REVENUE BUDGET

None in this report

FINANCIAL CONSEQUENCES FOR THE CAPITAL BUDGET

There are no financial consequences for the Council’s capital programme.

CONTACT OFFICERS TELEPHONE EMAIL ADDRESS

Tom Russell 223 1155 [email protected] Eamonn Boylan 234 3280 [email protected] Sara Todd 234 3267 [email protected]

BACKGROUND DOCUMENTS

Oxford Road Development Partnership – Strategic Development Framework Oxford Road Development Partnership Limited – Members Agreement

WARDS AFFECTED

Ardwick Hulme Moss Side Rusholme City Centre

IMPLICATIONS FOR:

ANTI EQUAL ENVIRONMENT EMPLOYMENT POVERTY OPPORTUNITIES OPPORTUNITIES

Yes Yes Yes Yes

1 BACKGROUND

A report to the Executive earlier in the year identified the Oxford Road area as strategically significant to the future economic growth of the City. Since this report Manchester City Council has been working with the major institutions and stakeholders within Oxford Road to ensure that the maximum benefit is gained from the development of the area for the residents of surrounding areas as well as the City as a whole.

Oxford Road is home to The University of Manchester and Manchester Metropolitan University, the Central Manchester and Manchester Children’s University Hospital Trust and the Royal Northern College of Music. Alongside these key institutions the area hosts a wide range of cultural facilities, from the Manchester Central Library in the North to the Whitworth Gallery in the South, including the Cornerhouse, the Manchester Museum, the Contact Theatre, Manchester Academy, the Dancehouse Theatre and the BBC.

Parts of Oxford Road are currently undergoing the most significant physical development programme in the city and the largest group of recent, current and planned investments in knowledge intensive activity anywhere in the North of England. Well over £1.5 bn is being invested by the Universities and the Hospital Trust alone and significant PFI investment is being made in the adjacent communities. This investment, coupled with proposed key developments such as the Biomedical Research Centre, will secure and strengthen Oxford Road’s status as the leading centre for research in the North and signifies the commitment of the key institutions to the delivery of the Manchester Science City programme.

It is estimated that just under 37,000 people (12% of the City Centre’s workforce) currently work in the Oxford Road area. Planned investment programmes in the major institutions, together with major new commercial developments at Central Spine and Great Jackson Street have the potential to generate a further 5,000 jobs; predominantly in financial and professional services, creative industries and communication technologies, making Oxford Road not only the primary focus for the future economic growth of the City Region, but also critical to the development of the higher value-added economy built on creativity and innovation that is vital to the future economic trajectory and competitiveness of the region as a whole.

Significant opportunities exist to support and enhance the development of such knowledge intensive activity. However the area faces considerable challenges to its future growth if it is to realise this potential. The role of Oxford Road as a major gateway to the city centre and the busiest bus route in Europe leads to significant problems of congestion and environmental impact. Very significant volumes of traffic movement, both to and through the area, add to the poor quality of much of the external environment. Reconciling the role of the Oxford Road as a key radial route with the inherent economic strength and potential of the area is critical to any future development.

Investment in the public realm has not kept pace with growth in capacity within the Oxford Road area and there is a clear need to promote a new and higher standard in

the public realm in order to ensure that Oxford Road provides a more fitting address for the major institutions but also that it becomes an attractive and functional area for attracting visitors and investors to make use of its, as yet under-exploited, retail, employment and cultural potential.

The potential for Oxford Road to support a more diverse and dynamic economy has not yet been realised. The historic development of the area has created large and sometimes under-utilised buildings and the potential for more diverse activity (including retail and cultural) to meet the demands of residents and visitors to the area and the communities adjoining it has not been fully explored.

The contribution of the Oxford Road area to the economy and well-being of its surrounding communities can also be further exploited. The communities adjacent to Oxford Road are home to a vibrant and relatively stable population, yet employment of local people remains at a relatively low level and the area suffers from lower than average educational attainment and high levels of deprivation. The major institutions are not yet viewed by adjoining communities as fully accessible and there is a need to ensure that the further growth of the Oxford Road institutions is managed in order to promote greater integration, both social and physical, with adjoining neighbourhoods.

2 OXFORD ROAD DEVELOPMENT PARTNERSHIP

The key institutions in the Corridor: University of Manchester, Manchester Metropolitan University and Central Manchester Hospital Trust, have joined with the City Council to establish a Development Partnership, the objectives of which are to:

- Establish a coherent strategy for the area (from St Peters’ Square to Whitworth Park and from Cambridge Street/Upper Lloyd Street to Upper Brook Street) - Add value to the existing investment programmes - Deliver additional resources to address some of the impediments or barriers to development which the area faces (for example the need to improve the quality of public transport and public realm) and - To maximise the area’s potential to support new business development, inward investment and employment growth

Membership of the Board of the Partnership has been expanded to include other key public and private sector stakeholders in the area, principally to ensure that the Board has the breadth of skills and experience to enable it to deliver the above objectives.

3 STRATEGIC DEVELOPMENT FRAMEWORK

Significant work has taken place since the last Executive Report to identify a cohesive strategy for the area. This work is largely complete. The Oxford Road Strategic Development Framework has been endorsed by the Partnership Board and is ready for consultation and publication.

The Framework identifies a number of principles which the Partnership has adopted in order to ensure the opportunities offered by the current investment plans are harnessed and exploited in a coordinated way. These principles are as follows:

- Maximise the opportunities arising from current and planned development and forecast economic growth for the area

- Support continuing growth in the area with improvements to transport infrastructure which reduce traffic and congestion

- Improve physical, economic and infrastructure linkages between key institutions, districts and communities

- Re-balance highway and public/pedestrian realm by creating a unifying public realm ‘vision’ for Oxford Road, with a sustainable urban realm and landscaping

- Encourage and support the development and improvement of local education, enterprise and employment growth

- Capitalise on and promote Manchester’s Science City status and Oxford Road as the heart of the Knowledge economy

- Improve ground floor amenities within the area in particular retail, leisure and cultural facilities and offerings

- Promote and reinforce pedestrian, cycling and public transport throughout the area

- Improve environmental quality of Oxford Road with reduction in pollution, emissions and noise

- Promote an awareness of Oxford Road and increase the area’s impact and influence as a destination of choice

The Framework establishes the baseline for the area and, applying the above principles to the baseline, introduces key strategic objectives in each of the following areas:

Improving the infrastructure and public realm of the area

It is widely recognised that the physical infrastructure and public realm in the area needs improvement as the use of Oxford Road as a key transport route has resulted in a deterioration of the public space. Investment in a modern and innovative design of the public space would change perceptions of Oxford Road considerably: reinforcing the area as rich in culture and knowledge.

Fundamental to this vision is the establishment of an integrated network of new linkages across Oxford Road into adjacent communities. Improved physical links promote better integration and spread the economic and employment opportunities from Oxford Road throughout the wider area.

Alongside improvements in the physical environment, if the significant economic growth forecast for the area is to be captured and maximum inward investment secured, a strategic approach must be taken to future development in the area: to ensure the most appropriate use of current and future developments for employment, commercial and residential usage.

The physical masterplan for the area anticipates improved transport developments and forecast economic growth and reflecting the vision for the area of a vibrant destination for knowledge and cultural development. The key strategic objectives adopted in this masterplan are:

• Improvement of the public realm • Integration of the local communities with Oxford Road • Identification of key development sites • Establishing a strategy for development of new residential and commercial space • Establishing connections and linkages • Improving the accessibility of Oxford Road Station • Developing a landscape strategy

Improving transport infrastructure and connections

Oxford Road is one of the most important arterial routes in to the heart of the Regional Center – leading south from the City Centre and connecting a significant proportion of residents in the wider conurbation with the business and employment centre. To ensure that the planned regeneration and investment in the area is sustainable and generates maximum benefit for the region and its local communities, it is essential that a radical review of the area’s transport network and infrastructure is undertaken.

As part of the preparation of Greater Manchester’s bid to the Government’s Transport Innovation Fund, an Oxford Road Transport Study has been undertaken which sets out a strategy to significantly enhance the public transport in the area, thereby allowing improvements to the public realm and supporting the area’s economic growth potential. The study recommended the following key measures:

• The introduction of a Bus Transit scheme, linking with a conurbation wide network, to enhance accessibility and provide high quality, low emission public transport • Complementary traffic management measures to address traffic on Oxford Road and adjacent radial routes and improve the local environment • Enhanced bus passenger waiting and interchange facilities • Improved access to Oxford Road Railway Station • Enhanced pedestrian and cycle links to, through and within Oxford Road, to improve local accessibility • Introduction of controlled resident parking initiatives 6

Economic development

Oxford Road is forecast to be at the centre of the City and Region’s competitiveness over the next decade, with unparalleled economic growth. The area has unique assets which will be key drivers of this growth: the major public institutions and their investment plans; the scale and range of development opportunities; and the level of entrepreneurship given the scientific and creative nature of its existing business base.

The key potential and challenge for the area is to bring together these unique assets in new ways which results in the highest levels of growth anywhere in the North West but which also uses the interaction of communities, students, academia and businesses to maximize the benefit for the surrounding communities and the wider city.

The following key drivers of economic growth have been identified:

- Reinforcing Oxford Road’s role in progressing the knowledge base of the city - Raising educational attainment levels - Promoting innovation, enterprise and competitive business growth - Overcoming high levels of employment

A core element of the Development Framework is the Oxford Road Employment Action Plan, which identifies a number of key objectives to be addressed in each of these areas and detailed actions and activities to be taken to achieve the overall objectives of increasing employment, investment, education and innovation and hence economic growth.

Cultural offer

A major strength of Oxford Road is its impressive range of facilities and the art forms which they cover. The opportunity exists to build on these considerable assets to develop Oxford Road as the heart of cultural Manchester. However to develop the area as a cultural tourist destination, there is a need to enhance the physical environment and ancillary activities. It is also critical that the development of the cultural economy offers opportunities for people living in surrounding communities and that the cultural offering is extended to be accessible to local residents.

Key developments have been identified as follows: - Enhancing the existing product and develop the area as the heart of Cultural Manchester - Developing community and education links - Encouraging more animated cultural activities such as outdoor events - Encouraging creative and cultural business - Developing a brand for the area which allows Oxford Road to be marketed as a destination

Retail offer

Research indicates that the retail, hospitality and leisure sector is forecast to expand by approximately 1,000 jobs to 2015. In part this reflects the current shortfall in leisure provision and is also a consequence of the forecast growth in employment in other sectors. Improved public realm and transport will also accelerate demand.

A central issue is the need to provide retail and leisure facilities which meet the needs of existing users of Oxford Road whilst also improving the accessibility of the area to the adjacent communities, which are at present relatively isolated. These users are distinct groups which change in each area of the Road: from the hospital’s patients and visitors to academics and students, cultural visitors and the wider business and resident communities. An improved leisure provision, tailored towards the unique and varied populations which it will serve, would achieve these objectives, whilst also encouraging inward investment and promoting the area’s cultural and knowledge strengths.

Key objectives have been identified as:

- Improvement of the current retail and leisure offer to enhance the diversity and competitiveness of the area. Strategically important areas have been identified as: University Precinct Centre, Cornerhouse/Little Ireland/Oxford Road Station area, Denmark Road and area adjacent to Whitworth Art Gallery, Manchester Central and the BBC and its surrounding area - Integration of the local communities through tailoring the type and location of the retail and leisure offering - Establishing retail ‘districts’ tailored to the specific users and promoting the cultural, education and innovative status of the area

Summary

The Strategic Development Framework has established a set of principles to be addressed and detailed objectives to be delivered. Implementation of the Framework, and the principles underlying it, reflects a complex and long term undertaking which will require commitments from its partners and the key stakeholders of Oxford Road, robust management and co-ordination arrangements.

Work has now commenced on a plan for the implementation of the objectives of the Partnership, building on the significant development work already underway in the area as a strong foundation for change.

4 LAND AT THE FORMER UMIST CAMPUS, LONDON ROAD

The University of Manchester has undertaken a review of its landholdings within the area of the former UMIST campus. This has identified significant areas of land that are surplus to requirements and which the University intends to dispose of in order to fund new Capital Projects elsewhere, as part of a more consolidated campus.

They have identified a site (see Appendix 1), which is close to London Road and to the south of the Piccadilly to Oxford Road railway viaduct. There is an adjacent area of land

owned by the City Council that fronts directly onto London Road, which is currently landscaped and would not be capable of development in isolation, due to its size and location. Therefore, it is proposed that a joint marketing of the site should be undertaken to ensure that best value is achieved for both parties and that a higher quality of development is also achieved on what is a major gateway site into the city centre.

A joint brief has been prepared which identifies the importance and prominence of the site and sets out a series of key development principles. This aims to build on the regeneration that is currently taking place in the area. In light of this, it would be necessary to bring forward commercially led proposals on this site. It would also be necessary to strengthen linkages to nearby local communities and ensure that physical, functional and environmental connections are strengthened between the city centre and adjacent inner-city areas. There will also be a significant element of public realm to replace that lost through redevelopment of the landscaped area currently in the Council’s ownership. The public realm proposals will need to include an increase in the number of trees across the wider area.

It is recommended that the Executive agrees to the Council including its land within the disposal arrangements (subject to agreement over the terms) and that the brief forms the basis of evaluation of any submissions received from prospective development partners.

5 NWDA FUNDING

NWDA have initially allocated £7m of capital funding within its Strategic Investment Plan for 2007/08 and 2008/09. The funding is budgeted within the Science and Innovation programme and hence applications to draw down on the funding must fit with the strategic objective of ‘Supporting major research concentrations and knowledge nuclei’.

The Partnership has been working actively to identify projects against which this capital can be used to optimum effect. A number of such projects have been identified and the initial stages of the NWDA process have been completed with first stage approval expected before the end of October. Initial projects include:

- Establishing a brand for the area and identifying suitable place branding initiatives - A capital project to ‘digitise’ the area – to provide high speed data networks which can improve the competitiveness of local businesses - Capital projects to improve the public realm of the area - Feasibility studies to identify ways of improving the cultural offering in the area - Support for the ‘Beacons of Public Engagement project’ which will seek to increase and improve the interaction of the Oxford Road institutions with local communities, in particular in relation to education, enterprise and employment - Development of a managed workspace and enterprise centre – to provide low cost accommodation and facilities for local businesses - Studies to identify the feasibility of an extension to the Science Park an Oxford Road Management Company and a ‘Real Learning Centre’ aimed at improving the employment prospects of local residents through targeted training and education

6 MEMBERS ADVISORY BOARD

The Partnership Board recognises the significance of the Oxford Road Corridor to the surrounding areas and in particular the potential regenerative impact that the corridor can have on those wards which are adjacent to the Corridor: Ardwick, Moss Side, Rusholme, Hulme and City Centre. For this reason, during the preparation of the Strategic Framework the Ward Councilors from each of these wards were invited to establish an Advisory Board to review and input in to the Strategic Framework as it was developed. The views of this group are reflected in the final Framework and continuing role for local members in overseeing, scrutinising and advising on implementation of the Framework.

7 CONSULTATION

The Framework will undergo a consultation process prior to final publication. The consultation will seek to ascertain and include comments from the key Oxford Road stakeholders: residents, business and institutions on Oxford Road and their employees, students, visitors to the area’s cultural, commercial and recreational facilities and professional, sector based and trade organisations.

Detailed plans for this consultation have not yet been finalised but the process is likely to be held over a four to six week period and will include a launch event targeted at the business community.

8 IMPLICATIONS FOR KEY COUNCIL POLICIES

Anti Poverty: A key objective of the Development Framework is to harness the key benefits of the Oxford Road area (excellence in health and education, economic growth and improved infrastructure and public realm) for the benefit of the adjacent communities which currently suffer high levels of deprivation.

Equal Opportunities: Establishing better connections and linkages between the local communities and the Institutions within the Corridor will be key to ensuring the communities feel the benefit of the significant investment being made in the area and can access opportunities arising through it.

Environment: The investment currently being made in the area, and the investment planned through the public transport and public realm initiatives will assist hugely in improving the local environment. All investment will be planned to high environmental and sustainable standards.

Employment: All of the strategies adopted by the Partnership (investment in transport and public realm, improvement of the retail and cultural offer and coordination of employment, enterprise and education programmes) are intended to improve the perception and

desirability of the local area, thereby capturing and increasing the significant economic growth forecast for the area.