Kingsway Development Brief Adopted May 2002

a Promoting City, Coast & Countryside

Lancaster District Local Plan Supplementary Planning Guidance Note 3 Kingsway Development Brief

Lancaster City Council www.lancaster.gov.uk

John Donnellon BA MA Corporate Director (Regeneration) Andrew Dobson Dip EP MRTPI PDDMS Head of Planning and Building Control Services

Lancaster City Council Planning and Building Control Service Palatine Hall Dalton Square Lancaster LA1 1PW

May 2002

i Kingsway Development Brief Adopted May 2002

TABLE OF CONTENTS

1. Introduction ...... 1 2. The site and its Surroundings ...... 2 3. Land ownership...... 4 4. Services ...... 5 5. Development Plan Background ...... 5 6. The Main Uses...... 6 7. Listed Buildings...... 8 8. Transportation...... 9 9. Form and appearance of development ...... 10 10. Implementation ...... 11 11. Further Information ...... 11

Notes 1) A large print version of the text in this document can be supplied on request

2) All maps contained in this document are reproduced from the Ordnance Survey mapping with the permission of the Controller of Her Majesty's Stationery Office © Crown copyright. Unauthorised reproduction infringes Crown copyright and may lead to prosecution or civil proceedings. Lancaster City Council Licence No. LA 078379. 2002.

ii Kingsway Development Brief Adopted May 2002

1. Introduction 1.1. Lancaster City Council is promoting • the impact any commercial the redevelopment of 2.3 ha of land proposals, particularly retailing and buildings at Kingsway, and leisure, will have on Lancaster. The site location and Lancaster centre and other details are shown on the attached shopping centres in the District; plans. This brief has been prepared and to guide the future development of • this important site, which lies on one the traffic generated by of the main entrances to Lancaster. development and its impact on the local road network. 1.2. The overall objective of the proposal is to provide a high standard mixed- 1.5. This is a revised version of the brief use development to bring a range of that was approved by the Council’s new facilities for residents and Planning Policy Committee for the visitors, and to achieve a major purposes of public consultation in improvement to the appearance of March 2001. An earlier version of the this important area at the entrance to brief was approved in June 1998 Lancaster City centre. following two rounds of public Redevelopment proposals must consultation. The Council has include measures to restore the considered comments received seriously dilapidated Bridge Houses, during public consultation and has which are listed Grade 2*. now formally adopted the Brief as Supplementary Planning Guidance to 1.3. Proposals should also, so far as Policies EC17 and T7 of the practicable, incorporate the main Lancaster District Local Plan. elements of the listed former swimming baths and bus garage. 1.6. As a major land owner and custodian The Council also wishes to see the of three listed buildings, the Council inclusion of car parking facilities has a significant interest in the site. within the proposal, serving not only However, this brief covers only the the new development but also acting Council’s role as Local Planning as a public parking facility. Authority. Any questions concerning land ownership issues should be 1.4. The site lies on the edge of addressed to the Head of Property Lancaster centre, at the convergence Services, whose contact details are of some of the District’s busiest set out in Section 11. roads. The Councils main concerns when dealing with development proposals will centre on:

1 Kingsway Development Brief Adopted May 2002

2. The site and its Surroundings 2.1. This Brief covers the 2.3 ha island Ltd and a former electrical goods site between Caton Road, Back repair and service centre. Both Caton Road, Parliament Street and occupy former industrial premises. 32 Bulk Road (see Diagram 1). These Parliament Street, a listed 3 storey roads form the main link between Victorian building, is in use as a Lancaster and the north and east, restaurant with student and carry in excess of 20,000 accommodation above. On the vehicles per day. At the northern end corner of Parliament Street and Bulk are a large disused bus garage, the Road is a vacant plot. There is a adjoining former Kingsway Sports petrol filling station, former car Centre and a car park. Bridge showroom and car hire depot on the Houses back onto the car park and corner of Bulk Road and Back Caton face the nearby Bridge. All of Road. This adjoins the extensive these buildings are listed. Sunlight laundry and dry cleaning works, with its attached drive in shop. 2.2. South of Bridge End House are a shop unit occupied by Farm Foods

E AT DG AR ON E e L r T t S n e C

y Retail Park it C

r e t s BU a LK c RO n The site of the former shoe AD a L

factory is a housing opportunity o T Garage To More He camb ysham e, Car and nforth Laundry D A The area north of the site is O R predominantly residential. N O e T n A a C L K le C c A y B C d n a Green Ayre An unkempt embankment s u Park rises abruptly from Back Farm Foods B w Caton Road. lo F a Bridge tr n o Houses C

Former Kingsway Baths SK ER TO N BR ID GE th F a ro T P H m E e M E Bridge Houses are a le ys or R c C ha ec Former T y arn m am S classical listed Toll C f a b T ort nd e, Bus Garage N n h E House and Inn. to M a IA L C R - A r P te s a c n a L - n o s s la G Northern end of site is an important gateway to Lancaster.

Diagram 1 – The Site and its Surroundings

2 Kingsway Development Brief Adopted May 2002

2.3. The Kingsway frontage of the site 2.4. Opposite the south end of the site, on overlooks Green Ayre Park and the other side of Bulk Road, is a Skerton Bridge, which together form small retail park containing Currys, an important part of the Lune Comet, and Halfords. The city’s Riverside Park. On the opposite Sainsbury store and car park lie frontage, beyond Back Caton Road, opposite the Bulk Road / Parliament there is a marked change in level and Street junction. an unkempt embankment. At the top of this former riverbank, an area of dense terraced houses overlooks the site. Next to this is an extensive area of vacant land that once contained a shoe factory, scrap yard and a motor workshop.

An aerial view of the Kingsway site

3 Kingsway Development Brief Adopted May 2002

3. Land ownership 3.1. The City Council owns the disused end of the site including the garage former bus garage, the former and the Farm Food retail store, and swimming baths and sports centre Sunlight Service Group, which owns and part of the associated car park, the Laundry. and Bridge Houses. Part of the 3.3. There are also various small Kingsway car park is leased to the ownerships at the corner of Bulk Sowerby family. Road and Parliament Street. The 3.2. Other major land owners are main known land ownerships are believed to be the Sowerby family, shown on Diagram 2. who own a large part of the southern

Lancaster City Council

Sowerbys y a w s g in Sunlight Service Group K Former Listed Buildings Bus Depot

This diagram is provided for illustrative purposes only.

Former Kingsway Baths

Bridge Houses

Farmfoods

t e e r t S

t n e m Lakeland d a a i l Pennine o r R a Laundry P n o t a C Housing Opportunity Site

Petrol Filling Station

Bu lk Ro ad North Not to Scale Reproduced from O.S. Road mapping Crown Copyright Bulk LA Licence 078379 2001 Diagram 2 – Main Land Ownerships

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4. Services 4.1. The site is affected by a number of developers to be aware of the underground services, which may constraints set by these and other affect the layout and/or the services before planning the details constructional details of the new of development proposals. Potential development. In particular, a former developers are strongly advised to millrace, now a major surface water contact the relevant service providers conduit, passes under part of the at an early stage. site. It will be important for intending

5. Development Plan Background 5.1. Lancaster City Council is producing a favour of shoppers and visitors. The new District Wide Local Plan. This Local Plan policies concerning anticipates the possibility of improving public transport, comprehensive redevelopment of the developing the Riverside Park and Kingsway area for mixed-use improving the city’s access corridors development including business, are all relevant. leisure, housing and retailing uses, 5.3. The Local Plan has now been subject to a range of constraints. through its public inquiry and its main 5.2. The Plan also proposes a car park of provisions in relation to the Kingsway about 300 spaces, which it is site have been confirmed by the envisaged will serve on-site uses, inquiry Inspector. Although not yet long stay commuters, and shoppers formally adopted, the policies of the and visitors to the city centre. This Lancaster District Local Plan now proposal will be assisted by the carry considerable weight and will be changing regime of car park important considerations in management within the city centre, determining any planning application designed to discourage commuters in for the Kingsway site.

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6. The Main Uses 6.1. A number of different potential uses site, and/or as a means of restoring may be acceptable on the site, Bridge End House. providing they comply with the relevant Local Plan policies and are Housing part of an appropriate mix of uses. Proposals should aim to bring about 6.5. In the last few years a large number a comprehensive redevelopment of of new residential properties have the site. Alternatively, the City been completed in or adjacent to Council may consider proposals for Lancaster City centre, and have partial redevelopment provided these proved extremely popular. The could be satisfactorily integrated into Council wishes to take every an overall scheme. Proposals for opportunity to promote the inclusion partial redevelopment that would of houses within mixed use prejudice the comprehensive developments in or around the city development of the site will not be centre, particularly on brownfield permitted. sites. Part of the site of the former shoe factory on Bulk Road already 6.2. In appropriate quantities as part of a has planning permission for mixed-use scheme, the following residential development and the uses are likely to be acceptable to adjoining former scrap yard and the City Council: garage sites are also suitable for • Business/Office (B1); residential purposes. A mixture of terraced and flatted development • Housing; could deliver a fairly high residential • Hotel/Youth Hostel; density in line with current Government guidance. • Leisure uses such as health and 6.6. With careful layout and design, other fitness centres; parts of the main Kingsway site could • Food and Drink, (A3) especially in also include high density, quality association with other uses. residential development. The site’s frontage to Parliament Street, where • Retail (A1) subject to its impact southbound traffic is at present on existing centres. restricted to buses, is particularly 6.3. The Council’s requirements for each suitable for housing. In addition, particular use are set out below. within the main body the site, new houses and flats could be introduced Business/Office Use set around a central courtyard. Whilst it is accepted that the surrounding 6.4. With its proximity to the Riverside road network will inevitably affect Park, excellent public transport links living conditions, the Council and ease of access to the city centre considers that these impacts could and the M6 Motorway, the site offers be overcome with careful attention to a potentially high standard of boundary treatment, landscaping and environment and is ideally placed to the location and orientation of living meet any demand for office space. accommodation. Business space could be provided as a street frontage to Parliament Street, as a perimeter architectural feature at the northern end of the

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6.7. In view of the site’s proximity to the concentration of late night activities city centre and to public transport, at the northern end of Lancaster city the Council will consider proposals centre and will adopt a cautious on this site which increase residential approach to any proposal in which densities by reducing the on site such uses are a significant element. provision made for car parking. Retail Hotel/Youth Hostel 6.12. The Lancaster District Local Plan 6.8. The site’s location also means it directs new retail development to would be a suitable location for a existing retail centres, at a scale hotel. The Council is also aware that appropriate to the function of those the Youth Hostel Association has centres. It also sets out criteria expressed an interest in locating in against which out of centre retail Lancaster. Again, such a use would proposals will be assessed including be an appropriate element in a a “sequential approach” (in line with mixed-use scheme. As with the provisions of PPG6) for the residential development, care will be location of new retail schemes. needed to minimise the impact of Proposals that could result in an traffic on any proposed use. adverse impact on the overall viability and vitality of existing centres will be Leisure Uses resisted. 6.9. Leisure uses, such as health and 6.13. The Lancaster and Morecambe fitness centres are amongst the Shopping Study concluded that by fastest growing development sectors 2006, there would be capacity within in the country. The Kingsway site the local economy to justify some could provide a suitable location for additional non-food retail floor space such uses. In dealing with such in Lancaster. An element in this proposals, the authority will consider capacity was the scope for further whether the proposal could be growth in demand for shops selling located in Lancaster centre by “bulky goods”. Subject to the tests applying a sequential approach in a set out in the Local Plan, such shops similar way to its treatment of major could form part of a new retail proposals. It will also take into development at Kingsway. Any account the potential impact of permission would be subject to proposed development upon existing agreement about the range and type town centres and its accessibility to of goods to be sold to prevent shops modes of travel other than the private selling “high street” goods. car. 6.14. Because of the more limited scope 6.10. Given the recent construction of for growth in spending on multi-screen cinemas in Lancaster “convenience” goods (mainly food) and Morecambe, the Council does and the physical and transportation not consider that the Kingsway site is constraints applying to the site, the an appropriate location for such use. Council does not consider that Kingsway offers the potential for a Food and Drink major food store. The Council also considers, that a redevelopment of 6.11. Bars and restaurants would be the site comprising entirely retailing appropriate uses on the Kingsway would result in a form of development site as part of a wider, that would be unlikely to meet the comprehensive proposal. However, requirements of the Local Plan and the Council is concerned over the will resist such a proposal.

7 Kingsway Development Brief Adopted May 2002

7. Listed Buildings 7.1. The Kingsway site contains a number prejudiced by traffic volumes of listed buildings. The future of these close to its north west wall; must be considered carefully by • Student Housing: similarly, its potential developers in any restoration as part of a larger redevelopment proposals. development as student housing would be acceptable, and well Bridge Houses (38-42 Parliament located in relation to local Street) transport, shopping and student 7.2. Restoration and reuse of the derelict facilities; fBridge Houses is a main objective of • Other uses of similar character. the Kingsway redevelopment. Bridge Houses are a former inn and toll- house built in 1787 in classical style Former Kingsway Baths and Bus to collect tolls for the contemporary Depot Skerton Bridge. They are aligned 7.5. The former bus garage and with the centre axis of the bridge and swimming baths are also listed are an important part of Lancaster’s buildings. Listed building consent will, Georgian heritage. therefore, be required for any works 7.3. The properties are listed Grade 2* of demolition or alteration. Guidance and, although in a poor condition and on proposals involving listed further damaged by previous buildings is set out in PPG 15 – extensions, it is important that the Planning and the Historic treatment proposed for the exterior Environment (PPG15) and policies faithfully restores the original exterior E29, E30 and E31 of the Local Plan. and fenestration details. Any 7.6. Finding a new, viable use for these extensions must be of an appropriate buildings will be extremely difficult standard of design and must not given their form, layout and physical overwhelm or otherwise spoil the condition. However, consent for appearance of the exterior of the partial or total demolition will only be original building. given if a detailed and costed 7.4. The following uses for the restored feasibility study demonstrates that full Bridge Houses may be acceptable: or partial retention of the buildings is unviable and impracticable. Any • Restaurant/Bar, operating in potential developer will need to association with or independently demonstrate the extent to which the of any leisure development; existing structures, or their best features, could be incorporated into • Business/office use, possibly as the overall development scheme. an entrance and phase one of a potentially larger development; 7.7. As the buildings are owned by the City Council, any proposal for partial • Youth Hostel: the Youth Hostel or total demolition will have to be Association is known to be referred to English Heritage. Initial interested in opening a hostel in discussions suggest that, provided Lancaster; the tests set out in PPG15 are fully • Housing: its conversion and complied with, English Heritage may restoration as part of a residential look positively at proposals involving development would be demolition of all or part of these two acceptable, though this could be buildings.

8 Kingsway Development Brief Adopted May 2002

8. Transportation

Car Parking Public Transport 8.1. The Council wishes to encourage the 8.4. A key part of the City Council’s provision of around 300 car spaces transport strategy (as set out in the on the site. This is intended to Local Plan) and the Local Transport provide essential access to the city Plan is a bus priority route from centre and reduce the need to use Heysham to . An the central one way system. The important element of this is the Council intends to encourage the use proposed extension of the existing of the car park by differential Parliament St bus lane along North charging, and wishes to promote a Rd to the bus station. Kingsway is weekend park and ride service for well placed to take advantage of the shoppers. increased emphasis proposed for public transport. Development 8.2. It is important to the Council’s proposals should ensure that public emerging transport strategy that the transport users have direct, new car park is available to the public convenient access to the new for both long and short-stay use. It facilities to be provided at the site. will not, therefore, be possible for all new parking to be restricted to users of new on site facilities such as Access for Vehicles leisure and/or retail uses. The 8.5. Roads around the site are heavily Council will be happy to discuss a congested. Access will require scheme of management for the car careful consideration. Whilst present park aimed at achieving sufficient circulation arrangements remain, it is general public access for city centre likely that access and egress for users, without compromising the vehicles will be to Back Caton Rd. legitimate needs of new development on the site. 8.6. Proposals involving modifications to the traffic system should indicate from where access to the various Access and Circulation parts of the site would be taken. 8.3. The site lies between some of Such arrangements will have to be Lancaster’s busiest roads. The discussed with the County and City County Council, as Highways Councils. Developers may find it Authority and the City Council are helpful to brief traffic consultants on working together on proposals to this issue. improve the transport system in this area. Developers must therefore Pedestrians and Cyclists work closely with both authorities and ensure that their proposals take 8.7. Proper, safe provision for cyclists and account of possible changes to the pedestrians to and through the site is highway network between Back of great importance. Both should be Caton Road and St. Leonardgate, afforded priority over vehicles proposed in the Local Plan. Any wherever potential conflicts arise. proposals for major development on Essential facilities such as cycle the site must be accompanied by a storage for staff and customers, and Transport Impact Assessment (TIA). adequate signing for walkers and cyclists, should be provided. The Council’s Cycling Strategy can be made available on request.

9 Kingsway Development Brief Adopted May 2002

9. Form and appearance of development 9.1. The Kingsway site is situated in a a high standard and visually prominent position at a key entrance attractive frontage to Kingsway and to the urban area of Lancaster, Parliament Street is considered Morecambe and Heysham. However, essential. the vacant listed buildings on Parliament Street and Kingsway Landscaping currently spoil the attractive riverside frontage. The enclosed industrial 9.3. Open space and car parking will character of Back Caton Road and need to be treated with great care the rising background of dense, and the Council will look for a mainly Victorian building also provide thoughtful approach to the design a poor first impression of Lancaster. and maintenance of open Redevelopment provides the landscaped areas. Within the site, potential to radically improve this the subdivision of car parking into unsatisfactory situation. visually contained areas by the use of tree and shrub planting and the creation of attractively landscaped New Building settings for the new buildings will be 9.2. In considering proposals for all or important. Pedestrian routes through part of Kingsway, particular emphasis the site linking the new buildings to will be placed on the impression the bus stops, car and cycle parking, development will create as a gateway nearby housing areas and the city to Lancaster. The Council will look at centre, should be suitably the way the development exploits the landscaped. positive elements of the Riverside 9.4. On the east side of Back Caton Park and views of Castle Hill, Road, the steep largely overgrown conceals negative features such as embankment has long been a Back Caton Road and conveys local negative feature in the area. At distinctiveness in new buildings. The present, it contributes to the poor Council has no fixed ideas of the final visual quality of this northern appearance of the site, and will entrance to the city centre. welcome innovative and Developers should consider how best contemporary building solutions. to improve its appearance, to the However, it will expect these to relate benefit of site users and drivers on satisfactorily to traditional local Back Caton Road. building styles on nearby sites towards the city centre. In particular,

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10. Implementation 10.1. The Council attaches great agencies such as English Heritage importance to securing the early, and County Council. It is successful redevelopment of the also prepared, if appropriate, to Kingsway site. It will, therefore, assist consider whether grant aid could be this process wherever possible. It will available from economic work with potential developers to development funds. facilitate discussions with key

11. Further Information 11.1. Further information on the redevelopment of the Kingsway site can be obtained from the following sources.

Lancaster City Council Planning and Building Control Services Palatine Hall, Lancaster Vic Crumley, Chief Planning Officer Andy Roe, Development Control David Lawson, Local Plans and Policy Brian Fagan, Building Control

Engineering Services Morecambe Town Hall Jim Robson, Highways Brian Abraham, Drainage

Property Services Graham Cox, Estates and Valuations

Lancashire County Council Environment Directorate Guild House, Cross Street, Preston Bill Jopson, Highways and Transportation

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