SHEFFIELD CITY COUNCIL Cabinet Report 11
Report of: Executive Director, Place Directorate ______
Date: 21st December 2011 ______
Subject: City Centre Breathing Spaces Strategy ______
Author of Report: Matt Hayman, City Development Division (35130)
______
Summary: The City Centre Breathing Spaces Strategy outlines the Councils Strategy on delivering a programme of open space projects in the City Centre. It builds on a number of supporting policies to provide a clear vision for the creation of new high quality open spaces linked by a network of clear pedestrian routes. ______
Reasons for Recommendations: In the light of the major increase in population there is a need to provide new and enhanced open space for City Centre residents and the Strategy provides a programme of projects to meet this need. The projects will also benefit visitors to the City Centre and contribute to the wider objective of creating a setting for increased investment and job creation. Key to delivering the Strategy will be greater geographical flexibility in the allocation of City Centre S106 open space funds. The Strategy seeks to increase community involvement through the Central Community Assembly by inviting views on the priorities for future major investment and establishing a fund for minor enhancements to existing open spaces in the City Centre.
Recommendations: That Cabinet: I. Adopt the Breathing Spaces Strategy as the framework for open space projects in the City Centre. Final prioritisation and approval of the projects will be agreed with the Cabinet Member for Business, Jobs and Growth or Cabinet depending on the authorities required.
II. Detailed allocation of funds to projects will be approved by Cabinet through further reports, the monthly Finance Budget Monitoring process and within the Annual Approved Capital Programme budget setting process reflecting member priorities and the availability of funds.
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III. Approve the amendment to Guideline 12 of the City Centre Living Supplementary Planning Guidance to allow greater geographical flexibility in allocating accumulated S106 funds in the City Centre. ______
Background Papers:
Category of Report: OPEN
2 Statutory and Council Policy Checklist
Financial Implications
YES Cleared by: Paul Schofield (Date 21 Nov 2011)
Legal Implications
NO Cleared by: Julian Ward (Date 1 Nov 2011)
Equality of Opportunity Implications NO Cleared by: Ian Oldershaw (Date 9 Nov 2011)
Tackling Health Inequalities Implications
NO
Human rights Implications
NO
Environmental and Sustainability implications
YES (section 13)
Economic impact
YES (section 14)
Community safety implications
YES (section 15)
Human resources implications
NO
Property implications
NO
Area(s) affected
Central Assembly
Relevant Cabinet Portfolio Leader
Helen Mirfin Boukouris
Relevant Scrutiny Committee if decision called in
Economic and Environmental Well-Being
Is the item a matter which is reserved for approval by the City Council? NO
Press release
YES
3 CITY CENTRE BREATHING SPACES STRATEGY
1.0 SUMMARY
1.1 The Strategy seeks to provide:
a clear explanation of the city centre open space strategy and how the Council intends to achieve a more robust and transparent prioritisation of future open space projects in the City Centre; a programme for their delivery including current projects under way and options for new ones; a supporting amendment to Guideline 12 of the City Centre Living Supplementary Planning Guidance (SPG) to allow greater geographical flexibility in allocating accumulated S106 funds in the City Centre.
1.2 Cabinet is recommended to approve: I. Adopt the Breathing Spaces Strategy as the framework for open space projects in the City Centre. Final prioritisation of the projects will be agreed with Cabinet Member for Business, Jobs and Growth or Cabinet depending on the authorities required.
II. Detailed allocation of funds to projects will be approved by Cabinet through the monthly Finance Budget Monitoring report and within the Annual Approved Capital Programme budget setting process reflecting member priorities and the availability of funds.
III. Approve the amendment to Guideline 12 of the City Centre Living Supplementary Planning Guidance to allow greater geographical flexibility in allocating accumulated S106 funds in the City Centre.
2.0 WHAT DOES THIS MEAN FOR SHEFFIELD PEOPLE
2.1 The Strategy will deliver much needed new and enhanced open space for City Centre residents, particularly in areas that have seen substantial investment in housing development and a subsequent growth in population over the past decade.
2.2 Proposed improvements will also benefit City Centre businesses and contribute to the wider objective of creating a setting for increased investment and job creation.
3.0 OUTCOME AND SUSTAINABILITY
3.1 The Strategy will contribute to achieving the Corporate Plan (Standing up for Sheffield) outcomes of a ‘Great Place to Live‘, Strong & Competitive Economy’ and a ‘Vibrant City’.
4 3.2 It will contribute directly to achieving objectives of the City Centre Masterplan (CCMP) 2009 (Consolidating City Centre Residential Communities), City Strategy, future Central Community Assembly Plans and the Sheffield Development Framework. It directly addresses the issue of the sustainability of the new City Centre residential population, healthy living objectives as well as issues arising from climate change e.g. flood alleviation.
4.0 BACKGROUND
4.1 The Breathing Spaces initiative started in 2009 in response to the need to clarify and make more transparent the process by which implementation of open space projects funded mainly by ‘Section 106’ (Planning Act) from housing developments, are identified and prioritised. It was also driven by a need for greater flexibility for S106 expenditure in the City Centre to allow a more co-ordinated and focussed approach to deliver the open space objectives of the CCMP and Sheffield Development Framework (SDF). The strategy is informed by the lessons learnt since the adoption of the City Centre Living SPG 2004 (CCL) and the changed economic climate.
5.0 REGENERATION CONTEXT
5.1 The City Centre's resident population has risen fivefold over the last decade: from an estimate of just under 3,000 in 2001 to over 16,000 in 2011. If these communities are to become sustainable, they need access to various services and amenities including green or open spaces.
5.2 The city centre is also the social and cultural hub and where many people work. It is a key gateway for most tourists, visitors and potential investors. Access to good quality open space is an important factor in the use and perception of the city centre, both by the people of Sheffield and those from outside.
5.3 Over the past decade the Council has secured major public funding to deliver new and enhanced open space and public realm identified in the CCMP and City Centre Quarter Action Plans. However, the recent abolition of the Regional Development Agency (Yorkshire Forward), uncertainty over future European funding (ERDF) and the end of funding like Housing Market Renewal (HMR), means public funding cannot be relied upon to support such work in the future.
5.4 The Breathing Spaces Strategy will therefore rely heavily on funds secured from private sector developers through the planning process under Section 106 (Town & Country Planning Act, 1990) or a future Community Infrastructure Levy (CIL). In some cases the receipt of S106 funds will provide match funding to lever in other streams from European Interreg, Environment Agency or the Lottery. S106 contributions also currently support a number of other policy objectives,
5 such as pedestrian route improvements to/from city centre, warden/ambassador schemes, ‘Connect’ signage and public art. The Strategy deals solely with funds collected specifically for the provision of City Centre open space.
5.5 In April 2011 the Cabinet adopted the ‘City Centre Incentive Scheme’ to encourage small to medium sized housing development where proposals are marginal, with exemptions to paying normal S106 contributions. To date (October 2011) three developments have been granted permission under the scheme and so could have an impact on projected S106 funds highlighted at section 10.3. A review of the Incentive scheme will be undertaken in April 2012.
6.0 PUBLIC CONSULTATION
6.1 Public consultation on the Strategy took place between the 14th September and 11th October 2011. This included presentations by Officers to community and business forums and public exhibitions at Central Assembly meeting, at the Central Library and at the opening event for the Sheaf Valley (South Street) Park.
6.2 Over 150 people attended the events and informal feedback (mainly discussions with officers) was very positive. Formal feedback was gained through completed questionnaires. Detailed analysis of representations is provided in the consultation report attached at Appendix A. The analysis has been used to inform the prioritisation of future projects presented below.
7.0 THE STRATEGY – FUNDING & PROJECTS
7.1 The Strategy provides a vision for a network of City Centre open spaces linked by high quality, safe pedestrian routes. To support delivery of this vision the Strategy identifies a programme of both large and small projects for future delivery and highlights how they might be funded.
7.2 The Strategy pulls together relevant policies from the following approved documents to provide a clear vision of the measures being taken to complement or offset the impact of new housing development, by improving and expanding City Centre open spaces:
City Centre Living SPG (2004); City Centre Masterplan (2009); Sheffield Development Framework Core Strategy (2009); Open Space Provision in New Housing Development SPG (1999); and The Sheffield Unitary Development Plan (UDP) (1998)
6 7.3 The Strategy will prioritise the distribution of accumulated/pooled S106 funds and in the future projects will be considered for funding from the CIL. The process for assessing the need for and/or calculating S106 contributions is guided by Appendix 2 of the City Centre Living SPG (2004) and this process will not change.
7.4 S106 Funding
Since 2004 contributions for open space in the City Centre under S106 have been based on the ‘City Centre Living’ Supplementary Planning Guidance (CCLS). Guideline 12 of the document requires developers to “make a financial contribution to the City Council towards provision or enhancement of open space in the city centre, prioritising open space in the same quarter as the development”. The public consultation was used to propose an amendment to Guideline 12.
7.5 The guideline amendment (Appendix B) proposes that the current system of quarter based funding pots be superseded by a single one for the City Centre. This is on the basis that the wider accumulation of S106 funds will deliver the strategic objectives of the CCMP and the Breathing Spaces Strategy. On adoption the Strategy will provide developers with a list of open space projects to be funded, partially or entirely, from future S106 agreements in the City Centre. The current requirement for ‘prioritising open space in the same quarter as the development’ will be superseded by a requirement to ‘prioritise open space in accordance with the City Centre Breathing Spaces Strategy’.
7.6 Amended Guideline 12 of the CCL SPG will be referred to in the wording of future S106 legal agreements between the Council and developers with the Strategy guiding how open space contributions are to be spent. The process will remain in force up to the adoption of a Community Infrastructure Levy (CIL) which could happen as early as Autumn 2013. Whilst S106 and CIL will run concurrently beyond 2013, there will be restrictions on local authorities ability to pool/accumulate S106 funds. S106 contributions will be focussed on delivering infrastructure related to development itself and not on delivering off site benefits.
7.7 Successful examples of this approach can be seen in recently completed open space projects at Devonshire Green, Gell Street Playgrounds and Sheaf Valley (South Street) Park. Flexibility will allow the Council to prioritise open space projects by taking into consideration match funding opportunities and feedback from consultation with the Central Community Assembly but leaving final sign-off with the Cabinet Member for Business, Jobs & Growth or Cabinet depending on the authorities required..
7 7.8 The Projects
The Strategy (Appendix C) identifies a programme of City Centre open space projects that currently do or may require S106 funding in the future. The projects have been split into 4 categories as follows: Minor Enhancements Current Projects Committed Projects Requiring Contingency Projects in the Pipeline / New Projects
7.9 Minor Enhancements
Following consultation with the City Centre Management Team and Central Community Assembly, the Strategy proposes that a ring fenced and annually replenished City Centre open space ‘Minor Enhancement Pot’ be created. This will allow the Council to respond to public requests for small enhancements to existing city centre open spaces, offsetting the impact of increased use from a growing City Centre population. Projects could include tree or flower planting, new lighting, new seats or bins, new play equipment, improved signage, ideas for improving neglected and/or underused spaces etc.
The allocation of funds to deliver the strategy will be taken within the Council’s existing Capital Approvals process which includes provisions to deal with minor variations to projects.
7.10 Current / Priority Projects
The following projects have already been extensively consulted on, have committed/approved budgets and are under way or are ready for delivery in 2011/12. They provide new open spaces in those parts of the City Centre where they are most needed, based on recent Quarter Action Plans and the 2008 City Centre Master Plan.
Edward Street Park Identified for action in the St Vincent’s Action Plan (2004), this existing open space adjacent to Edward Street Flats and in close proximity to many large new residential developments is run down and poorly laid out. It provides an opportunity for a much needed ‘pocket park’ with new seating, lighting, planting and events space. A long lease of the space to local community group ZEST (to manage and maintain) is being investigated. The project is funded by S106 and Interreg VALUE+ and due to start on site in Spring 2012.
Wicker Riverside Park The park forms part of the Sheffield Central Area Flood Protection (SCAFP) project. SCAFP aims to provide flood defences along Don to protect the Wicker Riverside area whilst also enhancing the river banks and walkways via habitat improvements and provision of a new riverside pocket park at Nursery Street. This is a key regeneration project in the
8 adopted Wicker Riverside Action Plan (2007). Funding for the first two phases has come from Yorkshire Forward (YF), Environment Agency Local Levy Fund, and the Interreg VALUE and MARE projects but S106 funds were required as match to draw these down. The project is due to start on site in January 2012.
7.11 Committed Projects Requiring Contingency
Both the European Community and Yorkshire Forward (the recently abolished Regional Development Agency) have contributed to new open spaces and public realm projects over the past decade such as Sheaf Square, The Moor and Tudor Square. However these funders do not allow the inclusion of contingency sums in a bid. The Strategy proposes that S106 funds continue to be used as match funding to both secure additional funding when opportunities arise and where appropriate provide a contingency fund up to £500,000 on externally funded open space projects in the City Centre e.g. Tudor Square (Completed) and the Moor.
7.12 Projects in the Pipeline / New Projects
The Strategy proposes 12 new projects which may be delivered using accumulated S106 funds and/or its successor the CIL. The design for each of the projects will be subject to further consultation and Cabinet approval as there is a need to secure substantial match funding when opportunities arise. The projects are:
Castle Park (former Castle Markets site including deculverting of the adjacent section of the River Sheaf) Exchange Place / Victoria Square (Victoria Quays) Fitzalan Square Hartshead Square Hubs Square (Cultural Industries Quarter) Montgomery Fountain / Broad Lane Car Park Paradise Square Porter Brook Improvements St Vincent’s Park (Solly Street / Scotland Street) Sheaf Valley Park Phase II Steel Route – Moorfoot to Castlegate West Bar / Crown Court Square
Whilst there was support for all the new projects, the following 3 were considered priorities by those who responded to the consultation (Appendix A).
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Castle Park Some archaeological investigations have taken place which has revealed remains of the Medieval Sheffield Castle under the Castle Market. However, the extent and quality of these will not be known until the site is cleared. It is not possible therefore to predict with any certainty the likely costs/opportunity for uncovering the remains. The project will be delivered through the comprehensive redevelopment of the Castle Market site and the wider area and will be linked to de- culverting the adjacent River Sheaf. It will also complement the proposed creation of Exchange Place/Victoria Square (below) between the site and the Canal Basin.
Fitzalan Square This square was formerly a major civic space but now is somewhat disconnected from the activity of the city centre as a result of poor quality connections to the central space, closure of the General Post Office and domination by vehicles. Further feasibility work is required.
Porter Brook Improvements Improvements to the station forecourt and Sheaf Square have been completed providing a very high quality “gateway” to the city. The open length of Porter Brook immediately upstream of Sheffield Railway Station suffers from crude canalisation into a concrete channel and also has a high risk of flooding. The station has been flooded twice in the last 17 years. New office / commercial development is also proposed on the highly prominent vacant site between Sheaf Square and the Porter brook.
The Porter Brook project proposes increasing the height of the bank to act as a flood protection, reducing the risk of flooding to 1 in 100 years and protecting the critical railway infrastructure, a busy public thoroughfare and the development site adjacent to the Brook. Subject to further feasibility work, S106 funding could be used to provide open space by renaturalising the Brook and providing a new access cycle footpath, wildlife habitat and planting. This project is part of a long term proposal to create a green corridor along the Porter through the Cultural Industries Quarter.
8.0 WORKING WITH THE CENTRAL COMMUNITY ASSEMBLY
8.1 It is proposed that the Central Community Assembly receives regular updates and is given a regular opportunity to give a steer / agree new priorities for spending S.106. Local residents will have an ongoing opportunity to input into this and more specifically on the spending priority for the Minor Enhancement Pot.
10 8.2 However in light of the strategic importance of the City Centre as the central business district as well as its civic, cultural and transport importance, Cabinet or Cabinet Member will retain the final say on approving projects and the allocation of funding.
9.0 MANAGEMENT AND MAINTENANCE
9.1 Projects proposed by the Strategy will need to include provision for future management costs. S106 can be used to fund maintenance of new or enhanced open space for a maximum of 5 years. The Strategy proposes that wherever possible income generated from events, concessions etc will contribute to covering management costs. Where appropriate other options including asset transfer or long lease of open space to community organisations or the involvement of other agencies such as the River Stewardship Company will be investigated.
10.0 FINANCIAL IMPLICATIONS
10.1 The table below highlights how much S106 funding for open space in the City Centre the Council currently has allocated to projects, holds for future projects or is due from developments as at September 2011
Status of S106 funds Amount (£) Received and allocated £1,962,000 Received and unallocated £0 Due £387,000 Total £2,387,000
10.2 The table below summarises the exiting commitments for received S106 funds.
Project Committed S106 Funding (£) Edward Street Park (Including £1,062,000 Feasibility)
Wicker Riverside Park £400,000
SCAFP1A – Wicker Smithfield £124,000
SCAFP1B – Stewardship £15,000
Women of Steel £18,000
City Centre Contingency Fund £343,000 (TBC)
Total £1,962,000 Balance £0
11 10.3 It is proposed that the £387,000 now due on developments in the City Centre (that have recently commenced or been completed) will be allocated to CCBSS projects outlined at section 7.9 and 7.12 subject to approval by Cabinet through the Council’s capital approval process.
10.4 In addition there is £2,600,000 of S106 for open space linked to planning permissions for developments in the City Centre that have not commenced.
10.5 It is anticipated that a small proportion of these developments will commence within the lifetime of their planning permission which will result in some of the above amount being received to deliver Breathing Space Strategy projects. However it is not possible to provide an accurate estimate of how much this will be due to the economic climate
10.6 Three of the agreements, totalling £37,937 are linked to housing developments eligible for the ‘City Centre Incentive Scheme’. Should the developments commence within 18 months of permission, the S106 will be nil and within 24 months 50%. This would have a nominal impact on future S106 funds of between £37,937 and £18,968 (There would be no impact if development commences 2 years after planning permission).
10.7 Detailed allocation of funds to projects will be approved by Cabinet through the monthly Finance Budget Monitoring report and within the Annual Approved Capital Programme budget setting process reflecting member priorities and the availability of funds.
11.0 LEGAL IMPLICATIONS
11.1 Developer contributions will typically be secured through a unilateral S106 agreement. The proposed changes will not affect this process.
12.0 EQUALITY OF OPPORTUNITY IMPLICATIONS
12.1 The strategy will be of universal positive benefit to all local people regardless of age, sex, race, faith, disability, sexuality, etc. However, it will have particular positive benefits for the disabled, elderly and carers by improving access to open space and the riverside. Also to women, vulnerable adults and the young through improved pedestrian routes plus street and amenity lighting. Families with children will benefit due to improved play/activity areas. An EIA will be undertaken for each individual scheme as it is brought forward for design/approval in due course.
13.0 ENVIRONMENTAL AND SUSTAINABILITY IMPLICATIONS
13.1 City Centre green and open space forms an essential part of the City’s environmental infrastructure. The Strategy addresses sustainability and climate change issues by promoting innovative solutions to management/maintenance of new City Centre open spaces and the
12 integration of strategic flood alleviation measures in the design of open spaces wherever opportunity presents itself.
14.0 ECONOMIC IMPACT
14.1 The Strategy will improve the city centre environment and setting for many potential redevelopment sites and encourage new investment. Indeed this was a key conclusion of the Yorkshire Forward commissioned ‘Research and Evaluation of Public Realm Schemes’ which the Council has recently received. This should generate new s106 contributions – a “virtuous” circle.
15.0 COMMUNITY SAFETY IMPLICATIONS
15.1 The Strategy will have a positive impact by encouraging greater use of city centre open space through the delivery of new spaces and improvements to existing open spaces with new pedestrian routes, seating areas and lighting.
16.0 PROPERTY IMPLICATIONS
16.1 There are no direct property implications arising from this report. However implications for individual projects such as asset transfer of Edward Street Park will be highlighted by specific reports for each scheme as they are brought forward.
17.0 ALTERNATIVE OPTIONS CONSIDERED
17.1 Do Nothing
It is acknowledged that the current strategy for city centre open space is not clear or visible to both the public and developers, is too restrictive to allow the funds to be spent most effectively and cannot continue. This is not a viable option.
17.2 Prepare the Strategy without a supporting amendment to Guideline 12 of the City Centre Living SPG
On adoption in 2004 the CCL SPG had assumed that there would be an even distribution of developer contributions and the accumulation of sufficient funds in each of the designated quarters of the City Centre, to deliver projects. This has proved problematic in practice. Firstly because the amount of S106 collected in some areas is very small (because of limited opportunity for new residential development); and secondly because the total amount collected over a few years, even in areas with good development opportunities, is sometimes not enough to pay for a scheme of decent quality and impact. The geographical flexibility proposed through the amendment to Guideline 12 will overcome this issue.
13 18.0 REASONS FOR RECOMMENDATIONS
18.1 There is a need to provide new and enhanced open space for City Centre residents. The Strategy provides a programme of projects to meet this need and an ongoing mechanism to update it through consultation with the Assembly.
18.2 Greater geographical flexibility in the allocation of City Centre S106 funds for open space is needed to deliver the Strategy.
18.3 To increase community involvement in identifying and prioritising funds for minor enhancements to existing open spaces in the City Centre.
19.0 RECOMMENDATIONS
It is recommended that Cabinet:
19.1 Adopt the Breathing Spaces Strategy as a framework for open space / public realm projects in the City Centre
19.2 Detailed allocation of funds to projects will be approved by Cabinet through further reports or the monthly Finance Budget Monitoring process and within the Annual Approved Capital Programme budget setting process reflecting member priorities and the availability of funds.
19.3 Approve the amendment to Guideline 12 of the City Centre Living SPG to allow greater geographical flexibility in allocating accumulated S106 funds in the City Centre.
Simon Green Executive Director Place Directorate
14 APPENDIX A City Centre Breathing Spaces Strategy (CCBSS) Public Consultation – 14 September to 11th October
Consultation Report
1. Introduction
The City Centre’s resident population has risen to around 15,000 over the last decade. As it expands, so too does the need to provide open spaces for residents to enjoy.
The Council collects contributions for these improvements from new developments when it gives planning permission in order to fund open space provision. These are commonly called planning obligations.
The City Centre Breathing Spaces Strategy provides a clear vision as to how we will improve and expand City Centre open spaces. Specifically, the document provides:
A clear explanation of the City Centre Open Space Strategy; A more robust prioritisation of open space projects and funding in the City Centre; A programme for delivery, including the current projects under way and options for new ones and A more efficient way of using planning obligations funding in the future to focus on key priorities.
2. Public consultation arrangements
The draft CCBSS was produced internally by City Development Division in September 2011. Following internal consultation with a number of key departments, including the Central Community Assembly, the document underwent external public consultation for a period of four weeks (from 17th September to 11th October 2011).
A number of events were organised to promote the Strategy. These are listed in Annex 1. The events were advertised by the Central Community Assembly (which e-mailed it to all their contacts) and also by the various groups, which hosted meetings to discuss it (City Centre PACT and Wicker Forum). Additional e-mails and letters were also sent to other contacts by CDD. Finally, the draft document, consultation boards (Annex 2) and questionnaire (Annex 3) were posted on the SCC’s website. The results of the consultation have been analysed in the section below.
3. Analysis and conclusions from the public consultation exercise
The events were well attended by around 150 people. We held focussed discussions at these meetings and we have also received 45 completed
1 questionnaires, which have been analysed. The key conclusions that can be drawn are:
a) The majority of respondents are local residents and/ or work locally;
b) Nearly 85% of respondents strongly agreed/ agreed that the City Centre open space projects should be prioritised according to local need;
c) Nearly 80% of respondents agreed with the creation of a ‘Minor Enhancement pot’ as proposed by the CCBSS;
d) Nearly 43% of the respondents agreed that community organisations should take a greater role in the maintenance of City Centre open spaces with another quarter stating that they are ‘not sure’. This is a new proposal introduced by the CCBSS and officers understand that more research into the implications needs to be done before it can be implemented as it is a complex issue. The idea is not to displace core Council funding but that in some cases, community organisations are better placed to maintain open spaces near them in ways which will also provide them with additional funding streams that may help other activities for these organisations.
e) We asked respondents to identify the three most important new open space projects (from a list of twelve) that should be implemented if and when funding becomes available. The full list can be seen in Q5 of the questionnaire (Annex 3). The three most popular ones are (in order of more votes): Castle Park (60%), Fitzalan Square (42%) and Porter Brook Improvements (33%). These three were followed by the Steel Route (Moorfoot to Castlegate) (29%), West Bar/ Court House Square (27%), Exchange Place/ Victoria Square (20%) and Paradise Square (also 20%).
It is important to highlight that people felt strongly about open spaces in the City Centre and a significant number of comments have been received. We have listed all of them in Appendix 4 and provided an officer response as well as any action recommended in terms of changes to the CCBSS. In brief, the ‘trends from these comments are:
the area around Castle market needs prioritising for investment as it is so run down; access to rivers in the City Centre is important; it is important to allocate resources for the upkeep/ maintenance of open spaces; Green Spaces and parks not in the City Centre but near it are as important as those in the City Centre. It is important to have ‘green corridors’ between spaces in and outside the City Centre; Encourage the use of transitional development as temporary green spaces; Open spaces don’t have to be formal; they could be quite informal.
2 Annex 1
3 Annex 2
4 ANNEX 3 CITY CENTRE BREATHING SPACES STRATEGY CONSULTATION SURVEY – SEPTEMBER 2011
The City Centre’s resident population has risen to around 15,000 over the last decade and there is a need to continue to improve the quality and distribution of open space to match the growing city centre population.
The City Centre Breathing Spaces Strategy provides a clear vision to improve and expand City Centre open spaces.
The Strategy will be put before Cabinet for consideration later this year.
Please take a few moments to give us your views on the above Strategy and its proposals. Q1 Are you a: a) Local Resident b) Own/run a local business c) Work locally d) Developer e) Student f) Visitor to the area g) Other
Q2 Do you agree that future City Centre open space projects should be prioritised according to local need? a) Strongly agree b) Agree c) Neither agree nor disagree d) Disagree e) Strongly disagree
Q3 The Strategy proposes the creation of a ‘Minor Enhancement Pot’ for existing open spaces in the City Centre. Do you agree with the proposals?
a) Yes b) No c) Not sure
5 Q4 Do you agree that community organisations should take a greater role in the maintenance of City Centre open space?
a) Yes b) No c) Not sure
Q5 The proposed Strategy identifies the following 12 possible future projects. Please indicate below what you feel are the three most important ones and the three least important ones for you.
Most Important - tick 3 Least Important - tick 3
Castle Park Hubs Square (Cultural Industries Quarter) Exchange Place/Victoria Square Fitzalan Square Hartshead Square Montgomery Fountain /Broad Lane Car Park Paradise Square Porter Brook improvements St Vincent’s Park - Solly St/Scotland St Sheaf Valley Park (Phase 2) Steel Route – Moorfoot to Castlegate West Bar/ Crown Court Square
Q6 Do you have any further ideas or suggestions for new open space projects in the City Centre?
Q7 Do you have any other comments?
6
Q8 Please give contact details if you wish to be kept informed of the progress in delivering the City Centre Breathing Spaces Strategy.
Name: Address:
Email address:
Thank you for taking the time to give us your views.
Please return your survey to us by 17 October 2011 in the pre-paid envelope provided (if you are at a consultation) or by post to: Sheffield City Council, Development Services, Howden House, Sheffield S1 2SH
You can view the results on our website: http://www.sheffield.gov.uk/planning-and-city-development/regeneration/schemes on or after the 30 November 2011
7 CUSTOMER INSIGHT MONITORING SHEFFIELD CITY COUNCIL
Sheffield Council aims to consult with its diverse community to ensure the views of all customers are represented. We monitor the delivery of our services to ensure that they are representative and that all our customers are treated fairly. In addition, we are legally committed to promoting equality of opportunity in everything the Council does.
To help us make sure we are doing this it would be helpful if you would answer the questions about yourself. Some of the questions may feel a little personal, but the information we collect is anonymous, will remain strictly confidential, in accordance with the Data Protection Act 1981 and cannot be traced back to you.
If you would like to know how we have used this demographic information, please contact Adele Robinson 0114 27 35436 [email protected]
Please tick all that apply
Mixed/Dual Heritage A) Ethnicity White and Black Caribbean White British White and Black African Irish White and Asian Gypsy/Traveller Other mixed background (please write in) Other European (please write in) ……………………………… ……………………………….. Other White background (please write in) ………………………………..
Asian or Asian British Black or Black British Indian Caribbean Pakistani Somali Bangladeshi Other African background Other Asian background (please write in) Other Black background (please write in) ……………………………… ………………………………
Chinese or Chinese British Other Ethnic Group Yemeni Any Chinese background (please write in) ……………………… Other ethnic group (please write in) ……………………………..
B) Disability Do you consider yourself to be a disabled person Yes No
8 Annex 4
CITY CENTRE BREATHING SPACES STRATEGY (CCBSS) CONSULTATION (17th September – 11th October 2011)
CONSULTATION COMMENTS, OFFICER ASSESSMENT AND RECOMMENDATIONS DRAFT IN PROGRESS 17 OCTOBER 2011
No. Comment Officer assessment and Recommendation 1 Greater access to riverbank at Shalesmoor/ Kelham for anglers would be Officers agree that encouraging new uses once riverside access has desired been improved should be encouraged. This could include bird watching, fishing, angling, kayaking, amongst others. It is also important however to Response from SPRITE (Sheffield Partnership for Rivers in Town recognise that there may be safety issues with some uses or conflict of Environments):Sprite would welcome the inclusion of access points to the interest between different activities. river in any policy or development plans for green and open spaces. The Upper Don Walk aims to provide public access to the entire river Apart from the increase in amenity, it would also allow access for working through this area but in some cases the canalised profile is not suitable parties eg litter picking, habitat improvement and invasive plant removal, for fishing. Some bank side access has already been established at not to mention wildlife and invertebrate monitoring. I'm sure this would also Neepsend Mills. fit with the Environment Agency who also require access for monitoring and improving the river corridors to meet their directives. The area around Kelham is currently being used by a local kayaking club. The Council has ALSO established a good working relationship with a I would suggest that interpretation boards may be useful at access points. number of groups, including the Sheffield Partnership for Rivers in Town These could be used to promote best practise for water users and inform Environments (SPRITE). the public of history, flora and fauna. They could also be used to provide contact details for reporting any problems such as pollution etc. ACTION - The principle of encouraging greater access and additional activities and signage in the Rivers Don and Sheaf wherever possible in There are some fishing stations along the Five Weirs Walk and also canoe the City Centre will be emphasized/ added to the CCBSS. launch sites and I don't see any reason to discontinue this policy and am unaware of any problems with this stance. All users should be expected to show a duty of care to themselves and other users and visitors.
9 The river at Bakewell is a huge attraction to the town and I believe we should nurture and promote our river corridors and be proud of their continuing improvement.
2 It would be nice for Fitzalan Sq to be part of the City Centre rather than be The current isolation of Fitzalan Square is acknowledged by officers. avoided Thus, one of the proposed future projects of the CCBSS is to produce further feasibility work in the area to enable the integration of Fitzalan Square into the rest of the activities in the City Centre. The square also forms part of the Steel Route Strategy. No change to the CCBSS is proposed.
3 University of Sheffield - St George’s Church area - wall needs to be taken Sheffield University is currently undertaking a review of its public realm. down The St George’s Church area will be included as part of this and officers will contact the University to make them aware of this comment. No change to the CCBSS is proposed.
4 Improve vehicle access and signposting to Victoria Quays. Victoria Quays Officers agree with the comment. Vehicle signage to VQ and car parks in is under used (2 separate comments) the area has been recently improved as part of the Connect signage around the Ring Road. The CCBSS acknowledges this problem by proposing a future project around Victoria Square/ Exchange Place top provide an attractive pedestrian link between the City Centre and this area. No change to the CCBSS is proposed.
5 Create park on land behind NHS walk-in centre This is a private owned development site.
6 Area round Castle Market needs prioritising for investment. Too many Officers agree around the poor environment around the Castle Market buses in the area. Important to build around historic monuments like the area. One of the proposed future projects in the CCBSS is to uncover the Castle (4 separate comments). medieval castle ruins once the market relocates to the Moor (expected in 2013), expose the River Sheaf and create a new square. This project has Related 4th separate comment: The north east of the City (Castlegate/ come out top priority as part of the consultation undertaken and this will Victoria Quays) is more in need of new open spaces than the rest of the be taken into consideration as funding becomes available. The proposed City Centre, which is better served already (local resident) creation of public space from the redundant highway on Exchange St
10 (Victoria Square) will also address the second issue. No change to the CCBSS is proposed.
7 You can judge a place by how well waterways/green corridors are looked Officers agree with the statement. Sheffield has made a big effort to after create and maintain routes through its rivers. The Five Weirs Walk and the Upper Don Walk are examples of these. The recently created Sheffield River Stewardship Company has been set up as a creative partnership to tackle works to improve the waterways for people and wildlife in and around Sheffield. It is specifically mentioned in all the proposals for open spaces made by the CCBSS that maintenance is essential, including the proposals for a pot of money to maintain existing spaces. No change to the CCBSS is therefore proposed.
8 More green space and footpaths from railway and bus stations to Agreed. The Sheaf valley master Plan, referred to in the CCBSS, river/canal proposes a series of linked green spaces from Norfolk Park through South St and Park Square to the Canal and the River Don at the proposed Victoria Square.
Also as in comment 4, officers agree that the poor signage to Victoria Quays is an issue which a future project in this area could help resolve.
ACTION – Ensure CCBSS includes the signage issue from the Midland and Coach stations to the River/ Victoria Quays.
9 Extend Freebee bus over Ladies Bridge/ Blonk St / Castlegate to include As the CCBSS recognises, the Castlegate area and Victoria Quays are Victoria Quays & hotels. two important areas in the City Centre that are in need to regeneration (see also comment 6 above). Officers have sent this suggestion to South Yorkshire Public transport Executive (SYPTE) for them to consider as its implementation is outside the remit of the CCBSS.
ACTION – This comment has been sent to Bob Telfer (Bus Development Manager, SY PTE). His response is as follows:
11 This suggestion is not something we could adopt as:
- It would have a very detrimental impact on journey time for existing passengers such as those travelling from Sheffield Interchange to the Peace Gardens and
- The diversion would take several minutes and either increase costs substantially or dictate a reduction in frequency if the longer journey time was to be operated by the same number of buses and drivers. Also, the longer and more roundabout route would substantially increase bus emissions.
10 Space behind Willey St/ Wicker could be made into an open space with The Wicker Riverside Action plan proposes a new open space at Nursery seating. Wildflower field won’t solve the rat problem. St., which is very close to the location indicated in the comment. This project is included in the CCBSS and will be delivered in 2012-13 with no further current plans for additional public spaces at this location.
11 New Don Bridge needs access for disabled people. Wicker footbridge The direct wheelchair access ramp over the bridge has not been built yet needs to be completed. It leads to nowhere (3 separate comments) by the developer. However, an alternative route accessible for wheel chair users exists via Blonk St.
12 Debris (in the rivers) needs to be cleared every day The importance of clearing of debris in the rivers is agreed by officers. Following the severe floods in 2007, the Environmental Agency has undertaken a significant programme of clearing the River Don to prevent problems in the case of heavy rain. A maintenance regime has also been agreed. No change to the CCBSS is therefore proposed.
13 Nursery St flood defence and park should be an on-going project The Nursery St flood protection and park is included in the CCBSS as the Wicker Riverside Park and it is a current project, which is expected to be completed by April 2012. No change to the CCBSS is therefore proposed
14 Important to leave some spaces – underused or forgotten Comment not fully understood by officers
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15 RIBA F.S – some ideas should be followed up We have assumed that this comment refers to the ‘Royal Institute of British Architects Future Studies’ publications. The Council has a good track record of following Royal Institute of British Architects (RIBA)'s Guidance and we have had some awards from this body in recent years. It is our intention to continue to do this for future projects. No change to the CCBSS is proposed.
16 Encourage green roofs and walls Noted
17 Shortage of public toilets - need to supply if people are to spend time at The issue of public toilets in the City Centre is a complex one. Their various City Centre facilities maintenance costs are high and there is an important issue of safety to consider. Sheffield City Centre has a number of public toilets and, subject to funding, new ones are considered in new developments (such as in the New Retail Quarter). However, in general, there is no clear policy to build additional ones and we have relied on public amenities and nearby cafes to provide this facility.
18 Regarding Q4 (of the questionnaire), community organisations should not This is a new proposal introduced by the CCBSS and officers understand be used to replace core Council services that it needs to be thought through before it can be implemented. The idea is not that local community organisations replace core Council services but that in some cases, they are better placed to maintain local public spaces in ways which will also provide them with additional funding streams that may help other activities of these charities/ non for profit organisations.
19 Milton St area in need of attention - ideal for student flats We recognise that the Milton Street area is need of attention and we are seeking to address this.The area is identified as a potential residential neighbourhood in the City Centre Masterplan, building on the successful housing development at Broomsprings, its proximity to Devonshire Green and the advantages of having a primary school and medical centre nearby. This is likely to involve some limited environmental/streetscape
13 improvements but not any significant new areas of open space. Whilst not strictly relevant to the CCBSS strategy, it is envisaged that this will be a mix of family housing, townhouses and a limited number apartments rather than student flats. No change to the CCBSS is proposed.
20 Put in more seating in town centre corridor - spaced out and same for Officers understand the need for appropriate seating in open spaces Division St & West St. developments and this is always an important design consideration. The CCBSS proposes the creation of the Steel Route, from Moorfoot to Castlegate. Appropriate seating will be considered as part of this corridor. It is more complicated to alter schemes once they have been completed such as Division St or West St where footways are also quite narrow and often very crowded.
ACTION – Include provision of appropriate seating as part of the Steel Route project. May not be possible on Division St and West St.
21 Are the proposals in the Strategy linking in with Sustrans? In addition to the individual open spaces in the City Centre (current or proposed for the future) included in the Strategy, there are pedestrian links/ ‘green routes’ to other parks and open spaces in the City. These link with Sustrans- sponsored cycle routes, where relevant and the Council is very active in working with the organisation across the City.
22 Make sure children/schools use spaces and teach to appreciate for future The Council has good links with the local schools and we have engaged care/protection a local primary in the design of Devonshire Green. We aim to continue doing this. No change to the CCBSS is therefore proposed.
23 The existing spaces are excellent No further comments from officers
24 Prefer money spent on consultation exercises to be spent directly on Consultation on Council strategies and proposals is a critical activity projects before the approval of documents by Cabinet. It is also mandatory to undertake it under strict guidelines when the proposals will affect planning policy, which is the case with the CCBSS. The costs incurred in
14 the consultation events of the CCBSS have been very low as we have utilised other meetings/ free events to promote the CCBSS. No change to the CCBSS is proposed.
25 Important to allocate resources for upkeep after development Management and maintenance of open spaces is critical. This is why the (2 separate comments) CCBSS proposes that all new open space should be accompanied by a full business case which will include provision arrangements for its future management. No change to the CCBSS is therefore proposed.
26 If people want green spaces, they should relocate to city boundaries and The comments on ‘relocating to city boundaries’ is not fully understood walk to town - fitter and cleaner but in terms of the promotion of walking to and from the City Centre, the Council is very active in the promotion of walking and cycling, including the city centre. No change to the CCBSS is therefore proposed.
27 Wicker Riverside Park – current proposals look cheap (particularly the As a result of needing to ensure flood defences can be integrated into cement wall) future redevelopment work in this area, they are being built as temporary features. Additionally, following the results of new modelling work, we have been able to change designs from a high polycarbonate cladding to existing railings to a lower structure made of concrete blocks. This has allowed adoption to take place of this structure as it is seen as more resilient. Every effort will be made to make the concrete blocks more attractive including filling holes associated with their casting and lifting, topping with a coping to tie in with other brick walls and painting the surface.
No change to the CCBSS is therefore proposed.
28 Montgomery Fountain in neglected Officers agree with the comment and the CCBSS proposed a new project for improving Montgomery Fountain, which include provision for a small open space (Broad Lane Car park)
29 No more flats in the City Centre; greater need for trees/ parks and green The aim of the CCBSS is precisely to increase the number of green/
15 spaces open spaces in the City Centre. Residential development in the City Centre has been high in recent years but it is not expected to continue to grow at that rate in the future. Open space contributions will always be expected from residential consents.
No change to the CCBSS is therefore proposed
30 Stanley St poor lighting needs improving urgently If development occurs in this area, there would be a requirement to improve lighting conditions. This issue is not directly relevant to the CCBSS so no change to the CCBSS is therefore proposed. Officers have forwarded to comment to Streetforce.
Response from Bob Stevenson (Streetforce) - There is no finance available to improve the lighting on Stanley Street and unlikely to be before the commencement of the Highways PFI project which is expected in July 2011. I can inform you that the lighting units on Stanley St are programmed for replacement within the first 5 years of the project .
31 Park Square could be improved Improved links to Park Square were included as part of the Victoria Square feasibility project. These will be considered as part of this project if and when it takes place.
32 The relationship between the Breathing Spaces Strategy and the Green Noted. No further comments from officers and Open Spaces Strategy is welcome
33 Please listen and act on results of the consultation and learn from errors The aim of the consultation exercise is to ensure that consultees views made with Devonshire Green are reflected in the final CCBSS document. This is the reason why all comments are being analysed and action taken where appropriate.
No change to the CCBSS is therefore proposed 34 Development always seems to be ‘piece meal’ Areas in the City Centre have had over the last decade a number masterplans and area plans to avoid development on a ‘piece meal’
16 basis. This is also the aim of the CCBSS which looks at need for open space over a period of time rather than on a development by development basis.
No change to the CCBSS is therefore proposed
35 Cleaning regime for the Wicker needs to be enhanced to City Centre Officers can confirm that it has now been agreed to include the Wicker standards area in the future City Centre cleansing contract, thereby giving it the same standard to the rest of the city centre. No change to the CCBSS is therefore proposed.
36 How realistic are these proposals to come off if the Council has no money? The CCBSS explains that the majority of the funding we are discussing are contributions collected from new developments when these obtain planning permission (‘open space planning obligations’). There are already funds accumulated from earlier developments. So although the money available is limited, it is important to think about future priorities now. This money has to be spent on open space provision. No change to the CCBSS is therefore proposed.
37 Open spaces are very important for the City Centre. In particular, grassed The principle of the use of ‘soft landscaping’, including grassed areas, as areas for children/ other users would be preferred a key part of the design of new public/ green spaces is already embedded in the CCBSS. Both the recently completed Sheaf Valley Park Phase 1 and the planned Edward St Park have included grassed areas as a key part of the project. However, there is a maintenance issue on these and it is important to consult widely on any new proposals to ensure that other aspirations, such as children’s play areas or the use of different materials can also be accommodated. No change to the CCBSS is proposed.
38. The issue of the pedestrian bridge at the Station/ Porter Brook needs The Council is fully committed to retain the existing pedestrian through urgent resolution. Could a new project be an alternative bridge to the route at the Station and this does relate to access to the new South St
17 Station? Park. Provision of any new bridge at the station is not seen as part of the CCBSS. 39 An outdoor gym type open space would be welcomed by City Centre This is an interesting idea which we think could be considered for future residents. Who could fund this? phases of the Sheaf valley Park. We will therefore add this idea to the Strategy as a suggestion. Funding, especially the on going maintenance would have to be identified, which may be a major issue.
ACTION – Add the idea/ suggestion of an outdoor gym type open space for future phases of the Sheaf Valley Park
40 Green spaces outside the City Centre but in close proximity to be used by The CCBSS has been produced to update the policy and priorities for City Centre residents are as important as those in the City Centre. “Green open space provision in the City Centre. However, we acknowledge the corridors” linking the City Centre with the rest of green spaces in the City importance of ‘green links’ to other open spaces, parks and the and the countryside around Sheffield are important. CCBSS is a bit insular countryside in and around Sheffield. This is why the plan contained in (3 separate comments) Appendix A of the Strategy indicates all these pedestrian links with areas outside the City Centre, in line with the Sheffield Green and Open Spaces. However, we acknowledge that this may not sufficient on this important point and will revise the strategy and links to spaces outside the City Centre will be strengthened.
ACTION – review the wording of the CCBSS on the issue of open spaces on the fringe/ outside the City Centre and strengthen the links.
41 Could we use transitional development sites as temporary green spaces? Gaining planning permission for such use is unlikely to be a problem. How do we achieve this in planning terms? We need to develop policy to Legal issues, landowner reluctance and anticipation of reluctance for do this. Use of temporary space more effectively to ‘breathe’ for the City development on green space are more significant obstacles. Examples Example is the old fire station. (2 separate comments) exist in the city where housing sites have been planted with wild seeds. The example of the fire station highlights that loss of revenue as a car park has to be included in any cost benefit analysis.
ACTION – Review scope of “Minor Enhancements Pot” to cover if prioritised by public.
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42 The General Cemetery should be included as a green space. It has a great The General Cemetery is outside the City Centre boundary and it deal of bio-diversity and has more listed buildings than anywhere else in therefore cannot be included as an open space as part of the CCBSS. the city. It can be accessed by walking from the City Centre However, we have passed on this comment to colleagues in Parks and Countryside for their consideration. No change to the CCBSS is therefore proposed.
43 Hillsborough has been forgotten and has got very little regeneration money Hillsborough is outside the City Centre and therefore not considered by or green spaces the CCBSS. Officers have however forwarded this comment to Rebecca Maddox (Central Community Assembly Manager). No change to the CCBSS is therefore proposed.
44 Comment on Tudor Square: liked the large grassed area before. Now the Acknowledge that the planters are only accessible to able-bodied. But the smaller grassed areas are raised and people have to climb to get to them. previous grassed area in Tudor Sq was also raised and did not have level access.
No change to the CCBSS is therefore proposed.
45 It is great to see the Council plan the next green spaces in the City Centre. No further comments from officers. No change to the CCBSS is Fantastic! proposed.
46 Sheffield Green Party welcomes the Council’s consultation on the Linkage between open spaces and increased economic activity: breathing spaces strategy for the city centre. Here are our brief comments. There is a significant amount of research that proves the positive impact of high quality open spaces to the economy, health and well being and Breathing spaces are vital to the wellbeing of a city and its residents. community cohesion. Evidence points to many health and environmental benefits, which in turn can have a positive impact on the economy. Quality of open spaces in the City Centre: It is true that in addition to people living in the City Centre, the area is The draft strategy seems to focus largely on "iconic" parks. But positive visited by many people who either come to see the City or work in the breathing spaces can take lots of forms. Parks and riverside areas are area and therefore public spaces must reflect a level of quality that is obvious examples; but even areas that look unpromising can play an higher than in district or local centre. However, the CCBSS is not just important part. For example, the Sustainable Communities Act identified about iconic parks but about open spaces that are fit for their purpose
19 the use of brownfield sites for food growing, until a developer moves in; but and for serving the local communities that that they serve, residential, some of these sites could also be used as parks. Also, temporary sites business or else. Consultation on any new proposal is a critical aspect of (such as the Wellington St car park) often wait years for development; so any proposal and this will ensure some input from potential local users in green enhancements (eg planting a row of trees round the edges) could the new project. provide a medium-term benefit for the city. Use of ‘stalled’ sites for food growing: Large numbers of people live and work in the city centre. Many of them Please see response to comment 28. Food growing is potentially more probably don't realise how close they are to sites like the riverside walks, complicated than temporary green space because of potential land Weston Park, the Botanical Gardens, Mount Pleasant Park or the new contamination. Also these temporary uses have a limited and potentially Sheaf Valley Park. If there were better information and signage, more very short lifespan which may mean the community not being able to people might use these. reap the benefits of their investments – financial and efforts.
It’s important that a strategy for breathing spaces is woven together with Linkages between City Centre open spaces and other parks/ open other proposals, such as building developments and transport changes, so spaces in the rest of the City: that the whole is greater than the sum of the parts. This point has already been discussed in comment no. 27. In addition to that, we will investigate if there is a map that includes open spaces in the Local people, both residents and workers, should be encouraged to play City Centre and links these to other parks/ open spaces in the fringe/ an active part in designing and maintaining good breathing spaces. other areas in Sheffield. Also for information, the new Connect City However, city centre forums and residents groups need encouragement Centre visitor map available from the Tourism Office and on line includes and strengthening. Really healthy breathing spaces may not happen public spaces and riverside walks in the City Centre and linkages to unless community engagement arrangements in CC are addressed others in the rest of the City.
Integrated development: Agree that public spaces should not be developed in isolation but linked to new developments and transport links. This is the case in the majority of cases as funding comes from new developments. Additionally, all new spaces in the City Centre have been identified by developing ‘masterplans’ of City Centre sub-areas (eight in total) which take a holistic and long term vision for the development of these sub-areas of the City Centre. In the future, significant areas such as Castlegate will need a new masterplan to devise the long term vision for the area.
20 Importance of public consultation: It is a key requirement of any City Council open space proposal to undertake meaningful and appropriate consultation with all key stakeholders, including local residents and users of the public space. We have in the past actively involved these groups in the design of public spaces. Often you will find that there may be conflicting interests between users and that the final design is a ‘compromise’ between all these different needs. However, we remain committed to continue to undertake consultation thoroughly.
47 Any works to reduce the risk of the Porter Brook flooding the Station The proposals included in the CCBSS for the Porter Brook improvements should not prejudice the viability if the Digital Campus Phase 3 plot are only indicative and officers agree that resolving the flooding issue for the Station should not have a negative impact on the development of the Digital Campus Phase 3, which is an important site for the City. No change to the CCBSS is therefore proposed.
48 Response from the Sheffield Wildlife Trust. The Trust would like to see:
Additional projects to de-culvert and naturalise the River Don and its River Don and its tributaries. De-culvert and naturalise more tributaries would be welcome and would contribute to the biodiversity priorities Please see officers’ comments to no.1 for the city through strengthening its ecological corridors (reflected in the Sheffield LBAP and the Wildlife Trusts Living Landscape vision). As well as biodiversity benefits, this could contribute to flood management relying more on the creation of water meadows or other storage areas rather than on hard engineering and raised embankments. It can also provide green infrastructure recreational routes. An example is the area within the inner ring road identified (back in 1991, in the Sheffield Nature Conservation Strategy) as a Wildlife Deficiency Area. Another example is the route of the Porter Brook between Sunnybank and the station (culverted and canalised along this whole length at present) as a potential wildlife corridor (requiring particular focused effort to make it a reality).
21 Similarly it is important to have a network of green spaces that link spaces Network of green spaces, in and outside the City Centre within the centre, and link them into green spaces outside the city centre, in Please see officers’ comments to no. 40 order to create an ecological network. This would be in line with the see Govt Natural Environment White Paper (The Natural choice: securing the value of nature 2011), the Wildlife Trust’s vision The strategy has the regeneration context but could also have a short section on the benefits of open spaces in city centres. Direct benefits for people – provision of space for exercise, relaxation, play and entertainment - leading to benefits in physical and mental health and community cohesion. Also Environmental benefits (that in turn benefit people): biodiversity provision; increasing resilience to extreme weather events, flooding and pollution; urban cooling; and carbon absorption that can all contribute to climate change reduction/mitigation.
The potential benefits should inform the need alongside local people’s views. Benefits of open space: Officers agree with the comments made. It is important to explore all the benefits Projects (including small ‘pocket’ sites) do not always have to be formal and of proposed open spaces and consult local communities about them. This can provide something pro-actively intended to promote biodiversity. SCC methodology is embedded in the CCBSS. should be promoting more natural spaces and more native species within the Inner Ring Road. There are many examples of great cities where native Formal and informal public spaces landscaping and naturalistic parks are a fantastically attractive part of the city A response to this comment will be considered by the Regeneration and centre – including London, Paris and Amsterdam.. Environmental Planning Team at its meeting on 7 December.
In line with this we would like to see a greater use of native species and not Types of plants and trees to be used in City Centre open spaces just exotic plantings in city centre breathing spaces. We would also like to see A response to this comment will be considered by the Regeneration and the use of long-season, nectar-rich species (to provide for insects – for Environmental Planning Team at its meeting on 7 December. example as provided by Green Estate) and varieties in plantings.
We would like to see careful consideration of the trees and tree species used in the city centre. The right choice of trees can provide shelter from high winds and rain, and to provide shade in summer. We would recommend the species used coming at least from the same genus as a locally appropriate native species and from local sources as a first choice (this would also reduce the risk of introducing tree pests and diseases which has happened recently in a Sheffield project). We would also like to see more use of large trees with spreading canopies, as the tendency is to plant varieties that have relatively
22 tall and thin profiles (for aesthetic and “risk management” reasons rather than for broadly based ecosystem service/ecological function ones). We would like to see informality and multi-use space created around natural principles, including natural play (there is a real lack of play opportunities in the city centre) Use of green roofs: We would like to see Green roofs as standard on new buildings in the city Guideline CC1 in the adopted Climate Change and Design Supplementary centre (working with the green roof centre and referring to the Sheffield Green Planning Document (March 2011) states that “provided they are compatible with Roof Habitat Action Plan) other design and conservation considerations and where viable, green roofs will be required on all larger development and encouraged on all other development”. This is not an issue directly linked to the CCBSS so no change to the CCBSS is proposed.
We would also like to see sustainable urban drainage as standard Sustainable Urban Drainage (SUDs) Adopted Core Strategy 67 Flood Risk Management requires the use of Sustainable Drainage Systems or sustainable drainage techniques on all sites where feasible and practicable. No change to the CCBSS is proposed.
We would also like a commitment from SCC to use peat-free composts in Use of peat free compost these schemes A response to this comment will be considered by the Regeneration and Environmental Planning Team at its meeting on 7 December.
The relationship with the Green and Open Spaces Strategy is welcomed. At Ecological links between open spaces the moment it is unclear how the green spaces in Appendix 2 (C)could be A response to this comment will be considered by the Regeneration and linked ecologically (as the green links in the map are desired pedestrian Environmental Planning Team at its meeting on 7 December. routes).
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APPENDIX B Guideline 12
New city centre housing developments for developments of five or more dwellings, or more than twenty five bedspaces of student accommodation will be expected to provide: a) courtyards, or green spaces or roof gardens, screened from street noise, where possible; and b) high quality multi-purpose open space which the residents and the public can use. In order to provide open space available to the public, developers will be expected to: i) make a financial contribution to the City Council towards provision or enhancement of open space in the same quarter as the development in line with the City Centre Breathing Spaces Strategy; or ii) provide appropriate publicly accessible open space as part of their development which would complement the city centre open space strategy as set out at Map 2 Appendix C of the City Centre Breathing Spaces Strategy.
The level of contributions towards open space provision from a developer will depend upon the number of bedrooms or student bedspaces within each dwelling, and will be calculated using the average number of residents expected in such developments.
Appendix 2 of the CCLS will be used to calculate the scale of any financial contribution in the City Centre. This appendix will be updated on an annual basis to take account of inflation.
Any financial contributions paid by a developer towards the provision or enhancement of open space will be the subject of a legal agreement specifying the amount of any contribution, when it should be paid and that it will be spent in accordance with the principles set out in the Council’s supplementary planning guidance “Open Space provision in new Housing Development”. This addendum to the SPG requires that this contribution be spent to complement the City Centre Breathing Spaces Strategy.
Model heads of terms for unilateral obligations Unilateral obligations will include the following heads of terms relating to open space off-site financial contributions, where this is appropriate: The Owners shall pay to the Council [on or before the commencement of any development within the meaning of Clause 2.2] the sum of £ to be used by the Council towards the provision of recreation space in the locality of the site. This shall be provided in accordance with the principles set out in the Council’s Open Space Provision in New Housing Development SPG, the City Centre Living SPG and the City Centre Breathing Spaces Strategy.
SHEFFIELD CITY CENTRE BREATHING SPACES STRATEGY December 2011
City Centre Breathing Spaces Strategy Consultation Draft
Contents
1. Introduction 2. The Purpose of the Strategy 3. Regeneration Context/Funding 4. Background Policy Documents 5. The Strategy – Funding & Projects 6. Public Consultation 7. Community Assembly 8. Management & Maintenance 9. Relevant Reports and Documents
Appendices
Appendix A City Centre Masterplan – City Parks & Green Network Appendix B Background Policy Documents Appendix C CCBSS Project Map Appendix D Relevant Reports and Documents
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1. Introduction
1.1 This consultation document outlines the City Councils “City Centre Breathing Spaces Strategy” (the ‘Strategy’) on delivering a programme of open space projects in the City Centre. It builds on a number of supporting policies to provide a clear vision for the creation of new high quality open spaces linked by a network of high quality pedestrian routes.
1.2 The City Council has been carrying out a programme of enhancement of public squares/spaces in line with the City Centre Masterplan (CCMP) for over a decade. This has been largely funded by economic regeneration programmes such as European Regional Development Fund (ERDF) but also by planning obligations from new developments in the City Centre (also called Section 106 funding).
1.3 The Breathing Spaces initiative started in 2009. This was in response to the need to clarify and make more transparent the process by which open space projects funded mainly by ‘Section 106’ funding are identified and prioritised. It was also driven by a need for greater flexibility for Section 106 expenditure in the City Centre to allow a more co-ordinated and focussed approach to deliver the open space objectives of the CCMP and Sheffield Development Framework (SDF). The strategy is informed by the lessons learnt since the adoption of the City Centre Living Strategy 2004 (CCLS,) and the changed economic climate.
1.4 It is proposed that Guideline 12 of the CCLS is amended and the current system of 8 quarter based funding pots be superseded by a single one for the City Centre, with a prioritised programme following suitable consultation. The reasons for this are explained below.
2. The Purpose of the Strategy
2.1 The Strategy updates the policy and priorities for delivering open spaces in the City Centre. It aims to pull together relevant policies from the following approved documents:
• City Centre Living Strategy (2004); • City Centre Masterplan (2009); • Sheffield Development Framework Core Strategy (2009); • Open Space Provision in New Housing Development SPG (1999); and • The Sheffield Unitary Development Plan (UDP) (1998)
2.2 The Strategy provides a clear vision of the measures being taken to complement or offset the impact of new development, by improving and expanding City Centre open spaces. Amended Guideline 12 of the CCLS would be referred to in the wording of future S106 legal
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agreements between the Council and developers. The Breathing Space Strategy will guide how open space contributions are to be spent. The Strategy will remain in force up to the adoption of a Community Infrastructure Levy (CIL) as early as 2013.
2.3 In summary, this Strategy document provides:
• A clear explanation of the city centre open space strategy and how the Council intends to achieve a more robust and transparent prioritisation of open space projects in the City Centre; • A programme for their delivery including current projects under way and options for new ones; • Highlights the supporting amendment to Guideline 12 of the City Centre Living Strategy and • A summary of issues in anticipation of the Community Infrastructure Levy (CIL).
2.4 The Strategy will be used to prioritise the distribution of accumulated/pooled S106 funds. The process for assessing the need for and/or calculating S106 contributions is guided by Appendix 2 of the City Centre Living Strategy (2004) and this process will not change.
3. Regeneration Context
3.1 The City Centre's resident population has risen fivefold over the last decade: from an estimate of just under 3,000 in 2001 to over 16,000 in 2011. If these communities are to become sustainable, they need access to various services and amenities including green or open spaces.
3.2 The City Centre is also the social and cultural hub and where many people work. It is a key gateway for the many tourists, visitors and potential investors. Access to good quality open space is an important factor in the use and perception of the City Centre, both by the people of Sheffield and those from outside.
3.3 Over the past decade the City Council has secured major public funding to deliver new and enhanced open space and public realm in the City Centre. However, the recent abolition of the Regional Development Agency (Yorkshire Forward), uncertainty over future European funding (ERDF) and the end of funding like Housing Market Renewal (HMR), means public funding cannot be relied upon to fund such work in the future.
3.4 Therefore the Breathing Spaces Strategy will rely heavily on funds secured from private sector developers through the planning process under Section 106 (Town & Country Planning Act, 1990) or its intended successor the Community Infrastructure Levy (CIL). S106 contributions currently support a number of policy objectives, such as pedestrian
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route improvements to/from city centre, warden/ambassador schemes, ‘Connect’ signage and public art. The Strategy deals solely with funds collected specifically for the provision of City Centre open space.
City Centre Masterplan (2009)
3.5 The delivery of new and improved parks, green spaces and hard open spaces in the City Centre is guided by the City Centre Masterplan 2009. The Masterplan was subject to an intensive public consultation programme, including presentations to each of the relevant Area Panels (replaced by the Central Community Assembly) in 2007.
3.6 The CCMP promotes the provision of new or improved open spaces at the following locations (table below) reflecting the best opportunities in the main new residential quarters:
Project Status / stage
Devonshire Green (Devonshire Quarter) Completed Sheaf Valley Park Phase 1 Completed Kelham Goyt (Kelham Island) Phase 1 Completed Nursery Street (Wicker Riverside) Phase 1 Under construction Sheffield Castle Site (Castlegate) Feasibility St Vincent’s (St Vincent’s Quarter) Edward St Detailed Design Park West Bar (Wicker Riverside) Feasibility Porter Brook (Cultural Industries Quarter) Feasibility Hubs Square (Cultural Industries Quarter) Feasibility Paradise Sq (Cathedral Quarter) Feasibility
Green Routes – Five Weirs (completed) and Out to tender Upper Don Walks, (Brooklyn Bridge)
’The Steel Route’ (Moorfoot to Wicker • Moor Phase 2 Detailed Design • Remaining Phases Feasibility
The CCMP City Parks and Green Network Plan is attached at Appendix A.
3.7 Feedback from this consultation document will help to prioritise these and future projects to make best use of the limited funds available. The following section explains how S106 funds are secured and highlights changes in national planning legislation and local policy which will impact on the delivery of open space projects in the future.
4. Background Policy Documents
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4.1 The following policy documents provide the process and justification for securing S106 open space contributions from new housing development in the City Centre.
• City Centre Living Strategy (2004) • Sheffield Development Framework Core Strategy (2009) City Policies & Sites when adopted (most recent draft 2010) • Unitary Development Plan Saved Policies (1998) • Sheffield’s Green & Open Space Strategy 2010 – 2030 • The Sheffield City Centre Incentive Scheme (2011)
The Breathing Spaces Strategy also considers how legislation empowering the Council to adopt a Community Infrastructure Levy (CIL) by April 2014 will impact on delivery of new and improved open space in the city centre. The City Council’s Cabinet will consider a report recommending proceeding with a CIL on 28th September 2011 and it could be adopted by 2013. A summary of how the above policy and legislation inform the Strategy is provided at Appendix B.
5. The Breathing Spaces Strategy – Funding & Projects
5.1 City Centre S106 Open Space
In support of the Strategy Cabinet approved (Subject to approval on 21st December 2011) an amendment to Guideline 12 of the City Centre Living SPG.
The approved guideline amendment proposes that the current system of 8 quarter based funding pots outlined in the CCLS (2004) be superseded by a single one for the City Centre. This is on the basis that the wider accumulation of S106 funds will deliver the strategic objectives of the CCMP. On adoption the Strategy will provide developers with a programme of open space projects and inform future S106 agreements for open space in the City Centre. The current requirement for ‘prioritising open space in the same quarter as the development’ will be superseded by a requirement to ‘prioritise open space in accordance with the CCBS’.
5.2 A successful example of this approach is in the Devonshire Quarter where major enhancements have been carried out to Devonshire Green and Gell Street Playgrounds. S106 funds had to be pooled, including some from other quarters in order to allow the scheme to be implemented. Both open spaces are now very well-used and the Green also functions as a City-wide venue for events. This work, including the above approach, was recognised by a Regeneration and Renewal Award in 2009.
5.3 The Projects
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The above approach will allow the Council to prioritise open space projects by taking into consideration match funding opportunities and feedback from consultation with the Central Community Assembly. This section identifies a programme of City Centre open space projects that currently do or may require S106 funding in the future. The projects have been split into 4 categories as follows:
• Minor Enhancements • Current/ Priority Projects • Committed Projects Requiring Contingency • Projects in the Pipeline / New Projects
5.4 Minor Enhancements
Following consultation with the City Centre Management Team and Central Community Assembly the Strategy proposes a ring fenced and annually replenished City Centre open space ‘Minor Enhancement Pot’ be created. This will allow the Council to respond to public requests for small enhancements to existing city centre open spaces, offsetting the impact of increased use from a growing City Centre population. Projects could include tree or flower planting, new lighting, new seats or bins, new play equipment, improved signage, ideas for improving neglected and/or underused spaces etc.
5.5 Current / Priority Projects
The following projects have been extensively consulted on and were previously endorsed by Community Assembly Members and are under way or ready for delivery in 2011/12 and provide new open spaces in those parts of the City Centre where they are most needed.
Edward Street Park
Identified for action in the St Vincent’s Action Plan (2004), this existing open space adjacent to Edward Street Flats and in close proximity to many large new residential developments is run down and poorly laid out. It provides an opportunity for a much needed ‘pocket park’ with new seating, lighting, planting and events space.
There was strong support for the proposals in public consultation in April 2010. Planning approval was granted in April 2011. The project is due to start on site in spring 2012. The site is in the ownership of the City Council and managed by Sheffield Homes. The estimated cost is £1,042,000, with additional funds secured from the European Interreg programme Value Project being used to deliver a more aspirational scheme in consultation with the local community...
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A partnership with the local Community Development Company ZEST has been proposed whereby they could take over the management and maintenance of the space through Asset Transfer for community sports and recreation activities.
Wicker Riverside Park – SCAFP 1b & 2
This forms a part of the Sheffield Central Area Flood Protection (SCAFP) project. SCAFP aims to provide flood defences along Don to protect the Wicker Riverside area whilst also enhancing the river banks and walkways via habitat improvements and provision of a new riverside pocket park at Nursery St. This is a key regeneration project in the adopted Wicker Riverside Action Plan (2007). Funding for the first two phases has come from Yorkshire Forward (YF), Environment Agency Local Levy Fund, and the Interreg VALUE and MARE projects but S106 funds were required as match to draw these down. Consultation has taken place throughout the project.
Phase 1b – The principle benefit will be the clearance, excavation and landscaping works on derelict former car parks on Nursery St to form a ‘pocket park’ incorporating permanent flood defences. Interim defences to the Nursery St area will also be provided. A S106 contribution is required which will in turn draw down £200,000 of Environment Agency funding as well as MARE resources for the initial survey and design. The Council has approved a S106 contribution of £300,000 with an additional £100,000 S106 contribution pending consideration by Council Cabinet.
Phase 2 – The creation of permanent flood defences on Nursery Street presents an opportunity to integrate the works with the development of a new riverside park or public space linked to the redevelopment of vacant land on Nursery Street with easy public access to the river. No S106 contribution is proposed at this stage. Construction anticipated once Phase 1b has been completed.
Tudor Square (Completed)
Enhancements to this existing open space were recently completed to encourage more use by City Centre residents, workers and visitors. The project was funded by ERDF and S106.
Sheaf Valley Park – Phase 1 (Completed)
This is the largest green space directly serving the City Centre. Consultation on the original proposal in 2005 followed by further public involvement in the Masterplan in 2008 demonstrated very high levels of support for enhanced tree planting, new public access through the
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park to the tram and station and the creation of a level event area with seating. Funding for Phase 1 (South Street) was identified from Housing Market Renewal (HMR), European Union Interreg, ERDF Access to Opportunities and S106 from the Blast Lane development (£198,000) and City Centre (£300,000). A further £30,000 of City Centre S106 is committed towards capitalised maintenance.
5.6 Committed Projects Requiring Contingency
Both European and Yorkshire Forward (the recently abolished Regional Development Agency) funding ensured that many new open spaces and public realm projects have been created over the past decade such as Sheaf Square, Moor and Tudor Square. However these funders do not allow for contingencies. The Strategy proposes that S106 funds continue to be used as match funding to both secure additional funding when opportunities arise and where appropriate meet shortfalls on externally funded open space projects in the City Centre.
5.7 Projects in the Pipeline / New Projects
The CCMP and City Centre quarter Area Action Plans also outline a number of longer term projects. These are included in the Breathing Spaces Strategy as a programme of projects to be prioritised through consultation and delivered using accumulated S106 funds and/or its successor the CIL. The process for prioritising projects will also take account of future match funding opportunities.
Castle Park/River Sheaf Day lighting
Some archaeological investigations have taken place which has revealed remains of the Medieval Sheffield Castle under the Castle Market. However, the extent and quality of these will not be known until the site is cleared. It is not possible therefore to predict with any certainty the likely costs/opportunity for uncovering the remains. The prospect has however attracted widespread public support notably in consultation on the Castlegate Masterplan (2005) and CCMP (2009).
To be delivered through the comprehensive redevelopment of the Castle Market site and the wider area and will be linked to de-culverting the adjacent River Sheaf and creation of the proposed Exchange Place/Victoria Square (below) between the site and the Canal Basin.
Exchange Place/Victoria Square
A new public square could be created in redundant highway to provide an attractive pedestrian link between Castlegate and Victoria Quays with improved links to Park Square and the bus and railways stations,
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enhancing the setting for the City's main Hotel Quarter. First phase of feasibility has been completed but further design feasibility work is required. This project is identified in CCMP and Castlegate Action Plan but considered a lower priority until redevelopment of the Castle Market site takes place, possibly in late 2013. Further design work funded by S106 could provide a viable project for future funding bids.
Fitzalan Square
This open space is hidden away and somewhat disconnected from the activity of the City Centre as a result of poor quality connections to the central space and is dominated by vehicles. Further feasibility work is required.
Hartshead Square
This existing open space in the Cathedral Quarter is under used and would benefit from enhancements and possible expansion linked to the redevelopment of adjacent sites.
Hubs Square (CIQ)
This small urban square adjoining the Sheffield Hallam University (SHU) Student Union Building (the Hubs Building) suffers from cheap materials, poor layout and is under-used despite its close proximity to the Hubs building and Workstation/Showroom. The square is located close to a densely populated area of apartments with no public open space. Improvements to the space are identified by SHU’s Campus Masterplan Framework.
The University has agreed to commit funding for highways / public realm enhancements within their city centre campus, primarily along upper Charles Street and Arundel Street. To complement this, the strategy proposes that S106 funds could be used (subject to availability) to deliver enhancements to lower Charles Street and Hubs Square.
Montgomery Fountain and Broad Lane Carpark
This historic monument is located in a Georgian stone sett paved area in front of the new North Campus of the University of Sheffield, in close proximity to large student housing developments. The site is currently a pay and display car park owned and managed by the City Council. Improvements to the site including provision for a small open space were proposed in the St Vincent’s Action Plan (2004). The timing of proposed road widening as part of the Sevenstone access works mean the parameters of the site are still to be determined. It is proposed that some initial design work/feasibility be undertaken with the support of University of Sheffield.
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Paradise Square
Enhancements to this historic square were identified in the Cathedral Quarter Action Plan (2004). The central cobbled area is owned by a charitable trust. It is currently dominated by car parking but could become a pedestrianised public space. Further feasibility work is required.
Porter Brook Improvements
The open length of Porter Brook immediately upstream of Sheffield Railway Station suffers from risk of flooding. The station has been flooded twice in the last 17 years. Improvements to the station forecourt and Sheaf Square have been completed providing a very high quality “gateway” to the city. New office buildings (the proposed Digital Campus Phase 3) are also proposed on the site(s) adjacent to the brook.
The Brook project proposes increasing the raised bank flood protection reducing the risk of flooding to 1 in 100 years. This reduction in flood risk would ensure that the critical railway infrastructure, a busy public thoroughfare and the development site adjacent to the Brook are suitably protected. Subject to further feasibility work S106 funding could be used to provide open space alongside the Brook by naturalising the Brook and providing a new access cycle footpath and planting. This project is part of a long term proposal to create green corridor along the Porter through the Cultural Industries Quarter.
St Vincent’s Park – Solly Street/Scotland Street
Identified in the St Vincents Action Plan (2004) this site is situated between Solly Street and Scotland Street adjacent to St Vincent’s Church. Planning permission for a multi-storey car park with a public green/open space was granted in 2007 but stalled due to the economic crisis. It is thought that the principle of an open space at this location albeit on a reduced scale is still desirable. Delivery would be linked to re-use of St Vincent's Church site.
Steel Route – Moorfoot to Castlegate
A key project identified in CCMP (2009) to deliver a north - south high quality pedestrian route, complementing the already completed east west route known as the ‘Gold’ route. Some phases/sections have been delivered (Fargate, High Street, Wicker and the lower Moor).
Improvements to further Phases of this route will be achieved incrementally as part of major redevelopment plans at The Moor, Moorfoot and Castlegate. It is anticipated that some S106 will be required as match funding to secure private/public funds or as contingency.
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Sheaf Valley Park – Further Phases
Further phases of the Sheaf Valley Park are planned in particular improved links to Park Hill (to be funded by developer Urban Splash) and new connections to Monument Gardens and Claywood which may require a contribution from S106 in the future.
West Bar/Crown Court Square
This comprehensive redevelopment project was on hold due to the development partner going into administration but now has a good chance of being revived with a new developer. The project requires the provision of a significant open space/public realm in front of the Crown Courts with associated pedestrian routes to/from the City Centre and Riverside. Whilst still in early development at present, West Bar could become a very significant scheme, bringing about a step change in this area.
6. Public Consultation
6.1 Public consultation on the Strategy took place between the 14th September and 11th October 2011. This included presentations by Officers to community and business forums and public exhibitions at a Central Assembly meeting, at the Central Library and at the opening event for the Sheaf Valley (South Street) Park.
6.2 Over 150 people attended the events and informal feedback (mainly discussions with officers) was very positive. Formal feedback was gained through completed questionnaires. Detailed analysis of representations is provided in the consultation report attached at Appendix A. The analysis will be used to inform the prioritisation of future projects.
7. Working with the Central Community Assembly
7.1 Community Assemblies were formed in 2009 by Sheffield City Council to provide more opportunities for residents to influence services in their area of the city.
7.2 In addition to the public and stakeholder consultation discussed above, the Strategy proposes the creation of a Service Level Agreement (SLA) between the City Development Division and Central Community Assembly to include further ongoing consultation on the prioritisation of City Centre open space projects.
7.3 This approach would seek to ensure that the Central Assembly is provided with regular updates on delivery of the Strategy and that
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future projects for the ‘Minor Enhancement Pot’ are proposed and prioritised by residents through the Assemblies devolved budget – subject to sufficient S106 funds being received. A report proposing projects for the Minor Enhancement Pot will be prepared for the Central Assembly to consider at its meeting in January 2012.
8. Management and Maintenance
8.1 All new open space proposals will be accompanied by a full business case including provision for future management costs. S106 can be used to fund maintenance of new or enhanced open space for a maximum of 5 years. Wherever possible income generated from events, concessions etc will contribute to covering management costs. Where appropriate other options including asset transfer to community organisations or other agencies such as the River Stewardship Company will be investigated.
9. Relevant Reports and Documents
9.1 A comprehensive list of documents that have been referred to in the preparation of the Strategy can be found at Appendix B and D.
For further information please contact:
Matt Hayman or Lucia Lorente-Arnau
Development Team City Development Division Housing, Enterprise and Regeneration Services 4th Floor, Howden House 1 Union Street Sheffield S1 2SH
Telephone 0114 2735130 or 2736673 Email [email protected] Website www.sheffield.gov.uk/planning-and-city- development/regeneration/schemes
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CCMP City Parks & Green Network - Appendix A
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Background Policy Documents - Appendix B
City Centre Living Strategy (2004)
Since 2004 contributions for open space in the City Centre under S106 have been based on the ‘City Centre Living Strategy’ Supplementary Planning Guidance (CCLS). Guideline 12 of the document requires developers to “make a financial contribution to the City Council towards provision or enhancement of open space in the city centre, prioritising open space in the same quarter as the development”.
The CCLS had assumed that there would be an even distribution of developer contributions and the accumulation of sufficient funds in each of the eight designated quarters of the City Centre, to deliver projects. However, this has proved problematic in practice. Firstly because the amount of S106 collected in some areas is very small (because of limited opportunity for new residential development); and secondly because the total amount collected over a few years, even in areas with good development opportunities, is sometimes not enough to pay for a scheme of decent quality and impact.
This has left a series of ‘quarter based’ funds, varying from those that require minimal additional funds to ensure projects can be delivered to those that are unlikely to accumulate sufficiently to deliver the open space priorities in the foreseeable future.
Also the distribution of funds in these tightly defined areas does not always correlate with the best opportunities for providing open space. It is proposed to resolve the issue by allowing greater geographical flexibility in S106 spend within the City Centre by removing the current requirement to ‘prioritise open space in the same quarter as the development’.
Appendix 2 of the CCLS provides the financial calculations in lieu of direct open space provision in the City Centre from housing development. The appendix is updated on an annual basis in line with the Retail Price Index. The process for calculating S106 contributions will not change.
Sheffield Development Framework (SDF)
The SDF is a set of statutory policy document, prepared in accordance with the Planning and Compulsory Purchase Act 2004. These include development plan documents, which comprise the city’s statutory development plan and this is presently made up of a ‘Core Strategy’ and ‘saved’ policies and the Proposals Map from the outgoing Unitary Development Plan. The development plan documents will also include the ‘City Policies and Sites’ document and new Proposals Map when they are adopted, which is likely to be in 2013.
Core Strategy (2009)
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The Core Strategy provides the overall spatial strategy for the SDF and was adopted in March, 2009.
Policy CS 48 ‘Open Spaces and Riversides in the City Centre’ recognises that City Centre open spaces provide not only for current and increasing numbers of City Centre residents but also workers and visitors.
The policy states that ‘Open space areas to be created, safeguarded and enhanced will be identified in the City Sites document and Area Action Plans and delivered through public funding and developer contributions’.
CS48 also acknowledges there is a need ‘to increase the amount of green space in the City Centre’ and that for ‘City Centre living to be sustainable over the longer term, open space and a greener environment need to be created as an integral part of new development’. The Breathing Spaces Strategy (the Strategy) provides a programme of projects to achieve this.
Unitary Development Plan Saved Policies (1998)
Unitary Development Plan (UDP) Policy H16 states that where new housing development takes place, developers will be required to provide for the recreational needs for new residents. The policy states that this should either mean that open space is provided directly on-site as part of the development or, where more appropriate, a financial contribution is paid by developer to enable new open space to be created locally or to enable investments to be made in existing open spaces, to improve their quality so that they can sustain increased usage. The CCLS flows directly from this policy, giving further detail on how it should be delivered in the City Centre context.
Open Space in New Housing Development Supplementary Planning Guidance (1999)
The Open Space in New Housing Development SPG provides further detail around the delivery of Unitary Development Plan Policy H16. It contains a number of guidelines and key principles that illustrate how the policy will be delivered with regard to open space provision and, particularly, financial contributions secured through S106. The City Centre Living Strategy draws on these principles, but provides specific guidance for the City Centre context.
City Policies and Sites (Draft, 2010)
The City Policies and Sites document will form the second of the two new city-wide development plan documents and will inform developers of what they are required to do/contribute to secure planning permission. A new Proposals Map is being prepared at the same time. The document and Proposals Map do not presently carry any significant weight in draft form but the evidence that underlies their policies and proposals is applicable to the Strategy.
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The draft policy D2, ‘Open Space in New Housing Developments’ complements the Core Strategy by indicating when new open space should be provided in association with new development. Effectively, this policy will replace UDP policy H16. It highlights that ‘in the City Centre, new and improved open spaces will be delivered in line with the priorities established in the Core Strategy (with) further detail set out in the City Centre Masterplan (2009) and Quarter (Area) Action Plans’.
The Strategy brings together projects identified in the CCMP (2009) and Quarter (Area) Action Plans to clarify what the current priorities are; how S106 funds will be distributed; and how the community can influence the prioritisation of future projects through the Community Assembly.
It is unlikely that the City Policies and Sites document and new Proposals Map will be formally adopted significantly before a CIL is levied. It will, therefore, set the policy context for the CIL system rather than the present arrangement based on Section 106 contributions. But the emerging policies, the Proposals Map, and the Strategy need to be consistent with each other to ensure a coherent long-term strategy for open space in the City Centre.
Sheffield’s Green & Open Space Strategy 2010 – 2030
This strategy seeks to ensure ‘that every area of the city has green and open spaces of exceptional quality for all current and future generations to use and enjoy’. The Strategy seeks to deliver the above vision for the City Centre area, contributing to the four priorities for action.
• Making sites accessible and safe • Achieving quality by design • Valuing local character and heritage • Realising economic value
Community Infrastructure Levy (CIL)
The Governments new Community Infrastructure Levy Regulations came into force on 6th April 2010. On the local adoption of the CIL or nationally after a transitional period of four years (6th April 2014), the regulations restrict the local pooling of S106 contributions towards infrastructure that may be funded via the CIL.
The regulations empower Local Authorities to introduce a CIL on most types of development. It is envisaged that the proceeds secured from a CIL will fund local and sub regional infrastructure to support the development of an area in line with the local authority’s development plans (including our Core Strategy). Unlike S106 a CIL would provide for the impact of all development and propose mitigating action on all infrastructure meaning a wider range than at present, where open space is the major recipient of contributions.
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The Council are preparing for the adoption of CIL by drafting an Infrastructure Delivery Plan (IDP) with its strategic partners. This will identify all future infrastructure provision, targets and deficiencies. The plan will also provide estimated costs and likely delivery programmes which will inform a CIL charging schedule for Sheffield.
The Sheffield City Centre Incentive Scheme (2011)
In order to stimulate development activity in the City Centre the incentive scheme was adopted by the City Council (Cabinet of 27th April 2011). The scheme seeks to encourage development where proposals are marginally not yet financially viable, but otherwise ready to commence. This will be in the form of a Completion Bonus, where exemptions to paying normal S106 developer contributions to infrastructure will be permitted to encourage development to be completed quickly. These incentives will focus on the City Centre as the chief driver of the City economy and on small to medium sized schemes where relatively small changes in development costs can make the difference to viability. It is anticipated that the scheme will have some impact on projected S106 receipts in the short term, strengthening the argument to pool limited resources for open space in the City Centre. The overall impact will be monitored a review undertaken after 1 year (April 2012) to inform a decision to extend the initiative or not.
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Breathing Spaces Project Map - Appendix C
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Relevant Reports and Documents - Appendix D
Sheffield City Council (1998) Sheffield Unitary Development Plan
Sheffield City Council (1999) Open Space Provision in New Housing Development Supplementary Planning Guidance
Sheffield City Council (2000) Cultural Industries Quarter Action Plan
Sheffield City Council (2000) Devonshire Quarter Action Plan
Sheffield City Council (2004) Cathedral Quarter Action Plan
Sheffield City Council (2004) City Centre Living Strategy, Supplementary Planning Guidance
Sheffield City Council (2004) Sheffield City Centre Urban Design Compendium
Sheffield City Council (2004) St Vincents Action Plan
EDAW (2005) Castlegate Masterplan
Sheffield City Council (2006) Statement of Community Involvement
Sheffield City Council (2006) West Bar Interim Planning Guidance
Sheffield City Council / Creative Sheffield (2009) Sheffield City Centre Masterplan
Sheffield City Council (2009) City Centre Occupancy Report 2008/9
Sheffield City Council (2009) Sheffield Development Framework, Core Strategy
Sheffield City Council (2009) Sheffield Development Framework, Draft Sites & Policies
Sheffield City Council (2010) Sheffield’s Green & Open Space Strategy 2010 - 2030
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