Agenda Item: 9E
Wolverhampton City Council OPEN EXECUTIVE DECISION ITEM (AMBER)
Cabinet / Cabinet Panel CABINET Date 15 MARCH 2006
Portfolio(s) ECONOMIC EVELOPMENT AND HOUSING STRATEGY
Originating Service Group(s) REGENERATION AND ENVIRONMENT
Contact Officer(s)/ COSTAS GEORGHIOU PHIL SHUTTLEWORTH Telephone Number(s) 5600 5629 KEY DECISION: YES Title WARD STREET MASTER PLAN – RESULTS OF PUBLIC CONSULTATION IN FORWARD PLAN: YES
1. Recommendation
1.1 Cabinet is recommended to :
(a) approve the responses to the public consultation on the Draft Ward Street Master Plan as set out in the Appendix to this report together with other minor amendments and additions;
(b) adopt the revised Ward Street Master Plan as a Supplementary Planning Document to provide a context and guidance for the submission of future planning applications.
Cabinet Report 15.03.06
Ward Street Master Plan
Results of Public Consultation
1. Purpose of the Report.
1.1 To advise members of the results of public consultation on the Draft Master Plan for the Ward Street regeneration project and to make recommendations for amendments as appropriate.
2. Background.
2.1 At the meeting on 27th July 2005 Cabinet noted the development principles set out in the Draft Master Plan for the regeneration of land at Ward Street and Ettingshall Road owned by Carillion / P.&O., National Grid (formerly Second Site) and the City Council.
2.2 Members authorised a major public consultation on this important project and this was undertaken by officers from the Project Implementation, Neighbourhood Management and the Bilston Regeneration Team in collaboration with staff from JBP public relations consultants and Carillion /P.&O.
3. Details of Consultation.
3.1 The consultation ran from 21st November to 16th December 2005 and involved the following elements:
• Leaflet drop with scheme summary and contact details to 3,000 local residents. • Static exhibition at the EVCAP Centre, John Street with a full consultation period staffed at advertised times. • Mobile exhibition located in Bilston Town Centre on two occasions, Bilston Local Area Forum and eight other venues in the local area. • 41 individual letters to interested bodies and individuals including the constituency MP and ward councillors for Ettingshall, Bilston North and Bilston East. • Public meeting at Bilston C. of E. Primary School. • Statutory press notice. • Press release. • Posting on Wolverhampton City Council website. • Freepost address for comments available throughout the consultation period.
4. Results of Consultation and Recommended Responses.
4.1 A summary of the comments received and council responses is listed as an Appendix to this report. 4.2 In addition to the public comments, a number of other minor amendments, updates and clarifications have been been included by your officers. These include such matters as updating policy statements in the light of the Inspector’s Report into the Unitary Development Plan and clarification of the design principles relating to the canalside area.
5. Financial Implications
5.1 Negotiations are continuing between the respective landowners to ensure that the significant infrastructure costs of developing the site and the ultimate capital returns from
Cabinet Report 15.03.06 its disposal are properly apportioned between the three owners from the outset. Further reports on the details of these negotiations will be brought to Cabinet in due course.
6. Environmental Implications
6.1 The implementation of the Master Plan as referred to in this report will regenerate a major area of derelict and underused land and bring about significant environmental improvements for residents in the surrounding locality.
7. Equal Opportunities Policies
7.1 This report has implications for the Council’s Equal Opportunities Policies in that it seeks to respond to the views of a range of interested parties including residents in an area of relative social deprivation. This is an important part of the process of bringing about a substantial new residential scheme which will include the provision of new social housing, open space and community facilities which will also benefit the existing communities in the area.
Cabinet Report 15.03.06 Ward Street Master Plan
Summary of Comments from Public Consultation and Recommended Responses
Respondent Comments Council Response Support proposals in principle. Welcomes Sport England Noted. Reference included Para 6.10. emphasis on quality open space but ensure canal
frontage provides a walking / cycling route connected to residential areas and refer to advice in document – “Active Design.”
Emphasise that any planning application must demonstrate that playing field provision will be in Noted. Reference included Para 6.32. accordance with PPS1, PPG17 and UDP Policy R5.
Playing field assessment required. Noted. Reference included Para 10.7.
The Ettingshall Village Association Welcomed the scheme as a replacement for the The points raised by TEVA will be former tyre burning plant. Concern at failure to investigated in the context of the Transport integrate scheme with surrounding communities. Assessment Report. Highways and Transportation consultants have been advised accordingly.
Inadequate routes from new development to existing facilities, i.e. Priestfield Metro stop, shops in New Street and the EVCAP Centre.
No restructuring of traffic management in surrounding areas. Support closure of Jibbet Lane Bridge. New development will increase
Cabinet Report 15.03.06 Respondent Comments Council Response traffic and “rat running” in surrounding streets to avoid the Bilston Road / Ettingshall Road junction.
To prevent through traffic recommend closure of George Street, Frost Street and John Street. Support restrictions on Jibbet Lane Bridge and recommend consideration of closure to all traffic.
Plan should indicate provision for cyclists, pedestrians and wheelchair users along railway cutting as far as Millfields Road.
Recommend changes described above could be funded from finance raised from the disposal of Council-owned land.
Heantun Housing Association New buildings should overlook open space around Agreed. Amendments made to plans primary school rather than backing on to it.
Poor junction at Millfields Road / Ettingshall Road. Improvement works already carried out to this junction to increase capacity.
Restricted visibility at site entry on Ettingshall Noted. New access will be as far away as Road due to canal bridge. How could proposals possible from the canal bridge. address these?
Approach to site through industrial areas does not The land zoned industrial on the Revised create context for “making a place.” Deposit UDP lies south of the canal and west of Ettingshall Road. There is often a problem at the interface between different land uses but it may be expected that the character of
Cabinet Report 15.03.06 Respondent Comments Council Response the industrial areas will be enhanced as the quality of design, materials and possibly uses improves over time.
To form a more diverse community, investigate Whilst it would be desirable to incorporate possibility of including “time served” housing land wider housing issues, (particularly in a brief for a wider area, with housing for sale in Wolverhampton Homes) it is not possible to place of rental and increase rented sector within do so within the timescale of this the existing Master Plan area. development. However, the Council will continue to liaise with W’ton homes on this issue with a view to considering these observations as part of future neighbourhood renewal initiatives in the area. English Nature Council should be aware that brownfield sites can Noted. Reference to PPS9 included Para harbour significant nature conservation interest. 6.35. Development should take account of PPS9 Mitigation measures already required. (Biodiversity and Geological Conservation). Appropriate mitigation measures will be required if protected species are affected.
Recommended Council conducts a survey to Surveys carried out. Results awaited. identify protected species, BAP habitats and species. SPD should include results of these
surveys. EcoRecord should be consulted.
British Waterways Support the objectives of the draft plan but are Noted. References now included to the disappointed that the canal is not given more importance of the canal to the development. prominence in the document. SPD should Paras 3.5, 6.33. Cabinet Report 15.03.06 Respondent Comments Council Response acknowledge the Black Country Tourism and Interpretation Strategy.
Towpaths should link into wider footpath and New section addresses treatment of the public transport network. Improvements should canalside area in relation to waterway users, form an integral part of any development proposals visitors and residents. Paras 6.10, 6.34 taking the opportunity to create new access points.
Refer to guidance document “Waterways Access Included. Para 6.34 for All” which sets out good design principles including the needs of people with disabilities.
Location of moorings should be considered as part Ditto of any new waterside development.
New development should create natural Ditto surveillance by facing the canal and positively use the water space.
Southern site boundary is the Birmingham Main Amended. Para 3.3 Line Canal not Millfields Road as described.
Refer to BW Planning Policy Document – Included. Para 6.11 “Waterways and Development Plans.”
Need to take development opportunity to enhance Included. Para 6.34 the canal corridor for the benefit of canal users, residents and visitors.
Refer to canal in terms of biodiversity wildlife value Included. Para 6.36 and as an important piece of public space.
Include the potential of the canal in land uses Cabinet Report 15.03.06 Respondent Comments Council Response section of document. Included. Para 6.6
Design of access road should discourage car Master Plan text amended to specify no parking adjacent to the canal. parking adjacent to canal edge but permit well designed and integrated parking on residential side of canalside access road.
BW has negotiated management agreements with Reference included Para 9.6. Part of on-going developers. Reference should be made to planning discussions with landowners on Section 106 obligations to ensure high quality maintenance of Agreement. the water space and towpath.
Planning applications should be accompanied by a Reference included. Para 10.8 water space strategy for the canal zone to ensure the canal and development are considered
holistically.
The Wildlife Trust for Birmingham and Comprehensive tree survey required indicating any Already requested in document Para 10.11 the Black Country statutory protection and proposed tree loss.
Concern at effect of infilling part of the railway Report on survey of habitats and remediation cutting as degrading a wildlife corridor. measures already requested.
Part of John Roberts playing field is Millennium Area referred to including mature trees Forest and subject to ground flora trials by adjacent to Ward Street not affected by University of Wolverhampton. Loss would be development proposals. detrimental to biodiversity value.
Cabinet Report 15.03.06 Respondent Comments Council Response No ecological assessment has been made of the This area covered by survey already carried green space around Bilston C. of E. Primary School. out. Development of this area may be detrimental to local biodiversity.
Planting strategy required to create a buffer zone Taken into account in discussion with BW between the canal and development. over landscape strategy within the canal zone.
The Trust wishes to see a comprehensive The survey referred to above has been ecological assessment of the canal to be developed undertaken by the Wildlife Trust. Results will and time for the Trust to respond. be assessed and taken into account in due course
Residents in Frost Street Concern at loss of John Roberts open space, Some tree loss but best mature specimens mature trees and effect on wildlife. will be retained.
Concern at proximity of new dwellings, issues of Security will be improved by creating private overlooking and loss of security. garden space at rear of existing dwellings.
Must restrict height of properties backing on to Plan will ensure that only 2 storey Frost Street to 2 storey. development backs on to existing residential properties.
Environment Agency A Flood Risk Assessment must be submitted with Reference included Para 10.13 any planning application. Even at outline stage
the applicant must demonstrate that surface water balancing can be achieved and how sustainable drainage techniques will be used with any obstacles to their use clearly justified.
Cabinet Report 15.03.06 Respondent Comments Council Response
Ditto Refer to PPG 25, CIRIA document C522 and the Environment Agency’s Interim Code of Practice. Recommend use of water conservation measures.
Head Teacher, The school recognises that the scheme will have Noted. Ettingshall Primary School and Nursery, benefits for the wider area but it will also affect on behalf of the Governing Body pupils whose interest must be considered.
Concern at effects of construction traffic. A Construction Traffic Management Plan will be produced and agreed with the applicants to provide details of access arrangements, operating times etc.
Traffic flows around the area will be increased Some traffic management measures are when development is completed causing highway already in place in nearby streets. These will safety problems for pupils. be enhanced in consultation with the applicants and local residents to ensure that the impact of the development is minimised.
Concern that part of the Bilston Primary School Local Authority officers will meet with school playing fields will be developed. This is where representatives to discuss this issue further. Ettingshall pupils have games lessons and sporting events. The additional 100 yards walk will cause a number of problems for pupils and staff, as listed in letter.
Request a footbridge across the Metro Line to The costs of such a proposal would be improve access without which the proposals could prohibitive. not be supported.
Cabinet Report 15.03.06 Respondent Comments Council Response
Director, EVCAP Centre, Wishes to increase usage of centre. IT resources The availability of this resource is noted and John Street are available which could contribute to educational will be taken into account when considering provision for new development. wider community provision as part of the new development.
Issues Raised at Public Meeting Community building should be a general facility Noted. Discussions are on-going between 8.12.05 available for all age groups. It should be located relevant officers to clarify the precise nature of closer to the Millfields Estate which has a secure the facility required and its preferred location. shortage of such premises.
Concern over loss of playing fields (see letter and See response to Sport England above. response above).
Concern over vandalism / anti social behaviour Cutting will be infilled to the first bridge. especially below bridges along cutting. Beyond that a landscape management plan will be prepared to upgrade the remainder of the cutting and increase visibility as a means of improving surveillance.
Need for adequate bus service through the new This will be provided in consultation with development. Centro at the appropriate time.
New corner shops could adversely affect existing It is noted that some units in New Street are shops in New Street some of which have already already closed but those remaining are too closed. Need to improve link between New Street far from the southern and eastern parts of shops and new residential. the development for convenient pedestrian access. A small retail outlet together with other community uses such as a possible GP surgery will help to create a focus of activity adjacent to the new public open space at the Cabinet Report 15.03.06 Respondent Comments Council Response centre of the development.
Additional comments recorded from There was general support for the new consultations at other exhibition development and the benefits it would bring to the venues not covered elsewhere. existing residential areas.
Support for affordable housing; need to control Traffic calming measures will be introduced. traffic speed; health facilities welcomed; (See above response to Ettingshall Primary improvements to crossings over railway cuttings. School). Support for play facilities, improved lighting and closure of the canal bridge to through traffic.
Concern at loss of industrial heritage – recognise in Inclusion of public art will be a condition of public art. any planning application.
Suggested learning disability scheme required e.g. Consideration of such a scheme will be taken a café/drop in centre. into account in the context of community provision by officers of the Council with the possible involvement of the EVCAP Centre.
Cabinet Report 15.03.06
LAND AT WARD STREET, BILSTON WOLVERHAMPTON
SUPPLEMENTARY PLANNING DOCUMENT
DRAFT FOLLOWING PUBLIC CONSULTATION MARCH 2006
WOLVERHAMPTON CITY COUNCIL
______
LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
CONTENTS ______
1. INTRODUCTION 2
2. DEVELOPMENT OBJECTIVES 3
3. SITE INFORMATION 4
4. GROUND CONDITIONS & STATUTORY SERVICES 7
5. POLICY CONTEXT 8
6. APPROPRIATE USES & DEVELOPMENT PRINCIPLES 11
7. ACCESS AND PARKING 20
8. SUSTAINABLE DEVELOPMENT 22
9. SECTION 106 AGREEMENT AND DEVELOPER CONTRIBUTIONS 24
10. PLANNING APPLICATION REQUIREMENTS 27
11. WHO TO CONTACT 29
12. STATEMENT OF PUBLIC CONSULTATION 29
13. STATUS OF DOCUMENT 30
14. APPENDICES
(A) SUSTAINABILITY APPRAISAL 31
(B) SCREENING REPORT FOR ENVIRONMENTAL ASSESSMENT 35
15. PLANS
1 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
1. INTRODUCTION
1.1 In November 2003, Wolverhampton City Council resolved to allocate a large area of mainly redundant brownfield land in Bilston for development in its Revised Deposit Unitary Development Plan. The intention was to encourage the comprehensive regeneration of this area for a residential-led mixed-use scheme.
1.2 The identified regeneration and Master Plan area lies to the east of the A4126 Ettingshall Road and to the west and east of Ward Street. It includes the former Bilston Gas Works, which was already allocated for housing in the First Deposit Unitary Development Plan, along with the Maxxiom and former Elm Energy sites. It also includes further areas of land within the Council’s ownership.
1.3 In view of the importance of coordinating development across the identified area and resisting piecemeal schemes from coming forward, the Council also resolved to prepare a Master Plan and Supplementary Planning Document to assist this process.
1.4 The Council has since worked with representatives of the private ownership interests, Carillion/P&O and National Grid Property Holdings Limited (formerly SecondSite Property Holdings Limited), to bring this about.
1.5 This Supplementary Planning Document seeks to secure the comprehensive residential-led regeneration of the land consistent with national, regional and City Council planning policy objectives for neighbourhood renewal and the creation of sustainable urban communities.
1.6 The Council wishes to see an innovative residential scheme brought forward with a mix of associated land uses that will contribute significantly to the future regeneration of this area and enhance the quality of this part of Bilston as a place to live.
1.7 The Supplementary Planning Document is also intended to assist in the promotion and marketing of the site and to offer guidance to prospective developers when preparing schemes and submitting any planning application.
1.8 Once adopted, the Supplementary Planning Document will form the basis for the submission of a comprehensive outline planning application.
1.9 Because the Master Plan is to be adopted as a Supplementary Planning Document, the Council has also carried out a Sustainability Appraisal to assess the extent to which the proposal would contribute to the enhancement of the environment and the more sustainable use of resources.
1.10 The Sustainability Appraisal shows that the Supplementary Planning Document complies with the European Directive 2001/42/EC and is likely to make a positive contribution to the Council’s overall sustainability objectives.
1.11 A Strategic Environmental Assessment Screening Report, which forms part of the overall Sustainability Appraisal, shows that an environmental impact assessment is not required for this regeneration scheme. Both documents are at Appendix 1.
2 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
2. DEVELOPMENT OBJECTIVES
2.1 The Council’s objectives for the area to be covered by this Supplementary Planning Document are:
• To encourage the early and comprehensive residential-led development of the Master Plan area in an integrated and coordinated manner;
• To promote a sustainable and compatible mix of uses, introducing diversity and vitality into the area, making the site an attractive and interesting place to live and visit;
• To integrate the new development into the existing residential community, particularly in respect of highway improvements, pedestrian links and open space provision;
2.2 The Supplementary Planning Document seeks to achieve these objectives by:
• Clearly identifying and illustrating the particular assets or characteristics of the identified Master Plan area which will need to be protected and enhanced;
• Identifying the important site development constraints;
• Setting out the manner in which the site may be developed to protect and enhance its assets and overcome the constraints; and
• Establishing acceptable forms of development and uses.
3 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
3. SITE INFORMATION
The Master Plan Area
3.1 The Master Plan area is located in Bilston, approximately 2km to the southeast of Wolverhampton City Centre.
3.2 Bilston is situated approximately 4.5km to the west of Junctions 9 and 10 of the M6 motorway. The principle road corridors serving Bilston include the A41 and A463. A location plan is provided at Appendix 2. The Midland Metro, operating between Wolverhampton and Birmingham City Centre, also serves Bilston, along with a number of high frequency bus routes.
3.3 The Master Plan site is situated within an area of predominantly mixed-use, with housing to the north and east and industrial businesses to the south and west. It is bound broadly by the A4126 Ettingshall Road to the west, The Birmingham Main Line canal to the south, B4162 Wolverhampton Street to the east and Hall Park Street to the north. Appendix 3 shows the Master Plan area. It has an overall gross area of approximately 22 hectares (55 acres) and includes three principal ownership interests: Carillion/P&O, National Grid Property Holdings Limited (formerly SecondSite Property Holdings Limited and the British Gas property arm) and Wolverhampton City Council.
3.4 Carillion/P&O own the former Elm Energy tyre burning plant, with access from Ettingshall Road, and Maxxiom sites to the west of Ward Street (which bisects the overall redevelopment area). National Grid owns the former Bilston Gas Works site to the east of Ward Street. Wolverhampton City Council owns the John Roberts Open Space, the former railway cutting, stretching from Ward Street to Millfields Road and the Bilston C of E Primary School and adjoining playing fields.
3.5 The Master Plan area comprises the following land parcels:
To the West of Ward Street
• A derelict block of Council housing at the corner of Ward Street/Sidwick Crescent – to be demolished.
• The former Maxxiom site – to form part of the core housing area.
• The former Elm Energy site – to form part of the core housing area.
• The John Roberts Open Space – to be replaced by a high quality Park of equivalent size relocated within land to the west of Ward Street.
• The Old Bush and Orange Tree Public Houses – to be retained.
• The Priestfield Sports and Social Club.
To the East of Ward Street
• The former Bilston Gas Works, which has now been cleared and remediated – to form part of the core housing area.
4 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
• A former railway cutting, now designated as Recreational Open Space, a Site of Local Importance for Nature Conservation (SLINC) and a Greenway in the Unitary Development Plan to be partly infilled and landscaped to create a direct access link to the school and other facilities to the east and produce a more functional area of open space.
• The Bilston C of E Primary School and playing fields – to be retained with playing fields reconfigured subject to DfES and Sport England approval.
To the South of the Master Plan Area.
• To the south of the Master Plan area lies the Birmingham Main Line Canal, a key waterway in the Black Country. There is a significant opportunity to improve this currently underused stretch of waterway and infrastructure to enhance the canal corridor generally for the benefit of users, residents and visitors.
3.6 The Master Plan area also has an extensive, under-used canal frontage to the south fringed by significant areas of low quality open space, which should be improved.
Site History
3.7 The Master Plan area sits over a local network of coal and iron ore mines and has been surrounded by industrial uses since at least 1887.
3.8 The western side of the site historically formed part of the Mars Iron Works, which operated up to around 1938, after which time various industrial and engineering activities continued, most notably, Maxxiom and the Elm Energy plant.
3.9 Maxxiom (part of the Carillion Group) operates a specialist plant hire and company fleet management business from the site, which is to be relocated. The Elm Energy plant closed some years ago, having originally been constructed to generate energy from waste tyres. The building has now been demolished.
3.10 Prior to decommissioning, the area to the east of Ward Street was historically the Bilston Gas Works. It has since been cleared and remediated.
Existing Access
3.11 The primary access points to the site are from Ettingshall Road to the west and Ward Street, which runs through the Master Plan area on a north-south axis. Ettingshall Road is classified as the A4126, which is a north-south route providing access to the urban area of Bilston from the A41 and A4123, these being two of the main radial routes serving Wolverhampton. Ward Street is a local distributor road running north to south through the Master Plan area, connecting to the A41 Bilston Road to the north and A4039 Millfields Road to the south (via Jibbet Lane Bridge). The A4039 serves Bilston Town Centre, approximately 800m to the east.
3.12 Existing access into the Council owned land to the east, and the Bilston C of E School in particular, is provided off Albany Crescent, which serves the adjoining housing area to the southeast.
5 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
Public Transport
3.13 The Master Plan area is accessible to the surrounding public transportation network.
3.14 The Midland Metro link connecting Wolverhampton with Birmingham City Centre follows an alignment to the north of the site with Priestfield station within reasonable walking distance. The 23 stations along the route connect the Master Plan area to a large number of destinations, including Bilston Town Centre.
3.15 There are 6 bus services operating along the A41 Bilston Road, the A4039 Millfields Road and Ward Street in the vicinity of the Master Plan area. Collectively, they provide 14 buses per hour in each direction during the day and an element of the site is within reasonable walking distance of these services.
6 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
4. GROUND CONDITIONS & STATUTORY SERVICES
4.1 The former Gas Works has been remediated in close consultation with the Council’s Environmental Health Team and the Environment Agency. Site investigation reports have also been undertaken elsewhere in the Master Plan area addressing:
• A Wolverhampton City Council registered former landfill site is located to the north east of the Greenway on the Council owned land. Construction of new dwellings is not recommended over this landfill. A ground gas investigation should be carried out to determine the full extent of the former landfill site together with confirmation of gas generation rates within the landfill. This investigation is required to confirm the level of gas protection measures necessary in any buildings within the vicinity of the landfill.
• Shallow coal and ironstone seams are anticipated across the development site, which have been extensively worked in the area in the past. Shallow mine treatment has been carried out beneath localised sections of the development in the past. Shallow workings and associated potentially unstable ground require treatment within the potential zone of influence of proposed structures, roads, and mains services.
• Recorded mine shafts are also present on the development area, a limited number of which have been treated in the past. Further unrecorded mineshafts may be present. All untreated or partially treated recorded mineshafts will need to be located and fully treated. All previously unrecorded mineshafts encountered during development works will need to be fully treated. Buildings should not be located within the potential zone of influence of mine shafts even after treatment.
• Made ground is anticipated across the site of variable composition, depth and compaction. The potential for ground instability associated with the made ground will need to be addressed for development proposals.
4.2 All main statutory services are available around the perimeter of the site, although it will be the responsibility of the developer to consult with the appropriate organisations.
4.3 A constraints plan is attached at Appendix 4 showing the key site constraints that will need to be overcome.
7 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
5. POLICY CONTEXT
5.1 The Supplementary Planning Document draws upon, and is supported by, a range of local and national planning policies and guidelines. National planning policy is issued through a series of Planning Policy Guidance Notes (PPGs) and Planning Policy Statements (PPSs).
5.2 Both PPS1 (Delivering Sustainable Development) and PPG3 (Housing) place a strong emphasis on the importance of design in the development process and attach a high priority to redeveloping urban brownfield sites for residential purposes.
5.3 The more recent companion guide to PPG3 challenges local authorities and developers to think imaginatively about design and layout. Any proposals will need to demonstrate compliance with such policy and guidance as well as conformity with this Supplementary Planning Document.
Statutory Development Plan Policy
5.4 The statutory development plan for the Master Plan area is the Wolverhampton Unitary Development Plan, which was adopted in 1993. The adopted Unitary Development Plan is being reviewed and a Public Inquiry into the Revised Deposit Unitary Development Plan (March 2004) was held in November 2004. The Inspector’s Report is due to be published by the end of the year.
5.5 The adopted 1993 Unitary Development Plan remains the statutory development plan until another plan is formally adopted by the Council to replace it, but the policies of the emerging plan are a material consideration in making planning decisions.
5.6 The overall vision of the emerging Plan is one of creating a more sustainable City through improving social and economic well being; raising the quality of life for residents and supporting local communities. In order to implement this vision, the Plan has three objectives: economic regeneration; social inclusion; and protecting and enhancing the environment.
Land-Use Strategy for Master Plan Area
5.7 The First Deposit Unitary Development Plan allocated the former Bilston Gas Works for housing. As a result of the representations subsequently made to this Plan, the Council decided to promote a number of additional housing allocations on previously developed sites in order to reduce the development pressures on greenfield land.
5.8 One such allocation was made by extending the Gas Works site to include the former Maxxiom and Elm Energy sites and John Roberts Open Space to the west and part of the disused railway cutting to the north east.
5.9 This site (reference MU5) is allocated in the Revised Deposit Unitary Development Plan under Policy H4 (Housing Allocations) for a residential-led regeneration scheme including appropriate ancillary uses such as open space and community facilities.
8 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
5.10 In response to the UDP Inspector’s recommendations (published Nov 2005), Proposed Modifications to the Revised Deposit UDP have been published for consultation. These modifications include minor amendments to the original MU5 allocation. The site has been relabelled as H1 to reflect the fact that it is no longer mixed use.
5.11 Proposed Modifications to Policy H9: Housing Density and Mix of the Revised Deposit UDP state that the density target for most housing developments will be within the range of 30-50 dwellings per hectare net. In this instance, a target average net density of 40 dwellings per hectare is considered appropriate, as the site is reasonably accessible to public transport. Policy H9 also requires the provision of a mix of dwelling types and sizes to reflect local housing needs on larger sites such as Ward Street. severance. 5.12 UDP Allocation H1 excludes the balance of the Master Plan area lying to the east of the former railway cutting within the Council’s ownership. This land has since been incorporated into the overall Master Plan area, as the Council considers it important to integrate the new residential community with the existing physical and social infrastructure in this area to overcome its existing
…… 5.13 Proposed Modifications to Policy H6: Design of Housing Development of the Revised Deposit UDP requires proposals to achieve a high standard of design, ensure compatability with adjacent uses and to both create a distinctive identity and respect and enhance local character. Proposed Modifications to Policy H8: Open Space, Sport and Recreation Requirements for New Housing Developments and Appendix 2 of the Revised Deposit UDP set out the requirement for all housing sites of 10 dwellings or more to provide recreational open space at the equivalent rate of 2.6 ha per 1,000 residents , together with play and sports facilities as appropriate. Policy R7: Open Space Requirements for New Developments expects all new developments to include appropriate areas of good quality landscaping and open space, commensurate with the scale of the development.
5.14 Policy H11 (Affordable Housing) seeks at least 25% affordable housing on all sites of 25 dwellings or more outside the City Centre.
UDP Design Policies
5.15 Policy D1 (Design Quality) of the Revised Deposit Unitary Development Plan is concerned with design quality and requires all proposals to demonstrate a high standard of design and contribute towards creating a strong sense of place. Proposals should evolve from an understanding of local distinctiveness and historic context. Poor and mediocre designs will be unacceptable.
5.16 Policy D2 (Design Statement) requires all planning applications to be accompanied by a written statement justifying the proposed design in relation to its site and wider context.
5.17 Policy D4 (Urban Grain) relates to the pattern of streets, plot sizes, buildings and spaces that characterise urban areas. Applicants for proposed development must demonstrate that the design solution retains and builds on the positive attributes of the 9 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON area and improves or ameliorates the poor ones. Policy D5 (Public Realm) requires that proposals promote active street frontages as a means of enclosing the public realm. Development should clearly differentiate between public and private spaces.
5.18 Policy D6 (Townscape and Landscape) states that proposals should reinforce or create local distinctiveness through site-specific solutions that respond explicitly to the site and its context. Under Policy D7 (Scale – Height), all development should be of a height that helps achieve a strong sense of place, relates positively to its surroundings and the local topography and does not detract from important views or landmarks. Policy D8 (Scale – Massing) relates to the massing and orientation of developments, whilst Policy D9 (Appearance) is concerned with the overall appearance of development.
5.19 Policy D10 (Community Safety) requires that proposals take account of community safety and the need to prevent crime. Policy D11 (Access for People with Disabilities) seeks to ensure that developments are accessible by people with disabilities.
5.20 Proposed Modifications to Policy D14: The Provision of Public Art of the Revised Deposit UDP states that the Council will seek to negotiate provision of public art on all major residential and commercial developments in accordance with the Council Supplementary Planning Guidance Note on the Provision of Public Art.
Historic Environment and Nature Conservation
5.21 There are no conservation areas, listed buildings or tree preservation orders affecting the Master Plan area.
5.22 The former railway cutting is a designated Site of Local Importance for Nature Conservation (Policy N5) and Greenway (Policy R6) in the Revised Deposit Unitary Development Plan. An ecological survey of the area was undertaken during Summer 2005 and a series of mitigation measures have been proposed to compensate for the existing habitat losses arising from the partial infilling of the railway cutting. The Master Plan design allows for the retention of the Greenway route for both wildlife and people.
10 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
6. APPROPRIATE USES & DEVELOPMENT PRINCIPLES
6.1 The Council’s vision for the Master Plan area is of a new residential neighbourhood, incorporating new and improved areas of public open space and local services. Development should be coordinated across the whole of the Master Plan area and integrate with the existing physical and social infrastructure in the interests of sustainability.
Principles
6.2 The development will be expected to demonstrate a high standard of design and contribute towards creating a strong sense of place.
6.3 Investing in quality development (to include amongst other things better buildings and public spaces) significantly contributes to the social, economic and environmental regeneration of an area. Any scheme will be expected to respond positively to the guidelines set out in the Unitary Development Plan design policies, supplementary planning guidance and ‘By Design’ (DETR/CABE 2001) and ‘Better Places to Live’ (DETR/CABE 2001).
6.4 In order for developers to deliver the aims and objectives set out in this Supplementary Planning Document, the following urban design principles should underpin all design decisions.
• Quality: Incorporating quality designed buildings and spaces within the area, which promote an attractive external environment, whilst also safeguarding the attractiveness of the existing environment (both buildings and spaces).
• Character: Making places that have character and a positive image, which people will want to revisit is important.
• Ease of Movement: Improving links through the site and connections with adjoining areas will be required especially for pedestrians and cyclists. Safe access, both in terms of overlooking and negotiating steep gradients and other level changes need to be considered in the design of the new connected street network.
• Continuity and Enclosure: Creating a place with attractive and successful outdoor areas.
• Legibility: Creating a space that has a clear image and is easy to understand.
• Mixed Use: A mix of uses that will contribute to the economic and social health of the area will be encouraged. The primary use sought will be residential, but complementary uses, such as small retail units and community facilities, will also be encouraged to add to the vibrancy of the area.
• Activity: Creating a place that is and feels busy. This is particularly important along the main routes where active uses can convey vibrancy and provide safe and overlooked routes for pedestrians.
11 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
• Sustainability: Incorporating adaptable buildings and flexible layouts that can sustain a variety of uses and help buildings to change over time. In addition, higher density development needs to take place adjacent to good public transport facilities to help reduce the reliance on the private car and promote alternative means of movement such as walking and cycling. The site layout should also be arranged to promote walking and cycling as an alternative to the car.
Land Uses
6.5 The Council wishes to see the Master Plan area developed for residential purposes with an appropriate mix of related uses, including a small retail unit and a community facility.
6.6 In addition, the land-use strategy should involve:
• Public open space improvements, including the creation of a new overlooked multi-functional park;
• Partial infilling of the former railway cutting in order to create improved access between the Master Plan area and the Bilston C of E Primary School; produce an integrated development and improve the quality of recreational open space provided.
• Making the maximum use of the canal as a piece of open space, nature conservation corridor, and publicly accessible transport routes for pedestrians and cyclists along the towpath which will be connected to the development to create a vibrant stetch of waterway.
• Defining the site of the Bilston C of E Primary School to ensure it is capable of incorporating a sufficient area of playing fields in accordance with DfES and Sport England requirements.
• Retaining the Old Bush and Orange Tree Public Houses.
Development Density
6.7 Given the context of the site, an average net residential density of 40 dwellings per hectare is stipulated.
Building Layout and Form
6.8 A comprehensive design approach will ensure the full integration of all components of the scheme in a cohesive manner in order to create a sense of identity.
6.9 An opportunity exists to establish a new street network to provide better linkages into the surrounding residential areas and allow the under-used canal environment and the existing Bilston C of E Primary School to be fully integrated into the overall development area.
6.10 The Birmingham Main Line Canal provides a major opportunity to create a distinctive character for the development. Any future Design Statement must ensure that the urban form of the development complements the canal providing not only an 12 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON attractive frontage but also enhancing the tow path as a walking / cycling route properly connected to residential and community areas. Guidance on the provision of such facilities may be found in the Sport England advice document, Active Design.
All detailed proposals adjacent to the canal must be developed in consultation with the Council and British Waterways with reference to the Planning Policy Document Waterways and Development Plans and the Design Guide, Waterways Access for All as well as relevant Council policies and guidelines.
6..12 The connections with the canalside walkway / cycleway should be defined and enclosed by urban blocks to ensure that each street meets with one another and avoid cul-de-sacs being created. Development should provide a continuous built-edge to these streets and back on to each other with rear gardens safely enclosed within the urban block to improve security for properties and provide overlooking and natural surveillance.
6.13 The surrounding urban grain is generally linear with traditional street layouts, particularly to the north, set on north-south grids. Development should not only seek to extend or run parallel to this grid, but also respond to the diagonal lines of the canal and Greenway.
6.14 It is essential the layout of the new development links seamlessly with the surrounding area. The choice of building materials should also complement the locality, whilst not necessarily replicating the existing housing. Buildings should create a sense of architectural quality and urbanity along the road frontages by means of parallel alignment, respect of building lines, massing and rhythm.
6.15 The development should be generally consistent with the existing two-storey building height of the locality Properties at the rear of Frost Street should be restricted to 2-storey although 3 or 4 storey building forms may be justified where they enclose large spaces or address larger buildings across the canal.
6.16 Focal structures should be used to define principal frontages onto the new Park, Ettingshall Road, Ward Street, the disused railway corridor, school playing fields and the canal. Corner buildings should also be used to ensure that turning points and junctions are well defined and marked.
6.17 Vistas through the scheme should be provided from Ettingshall Road to Ward Street and across the new Park and from the site into the surrounding area.
6.18 The urban blocks should be of such a size and shape to allow for the efficient and sufficient provision of dwellings and private amenity space. The private gardens and shared amenity space for gardens should accord with the guidance given in the City Council’s Supplementary Planning Guidance No.3 on ‘Residential Development’.
6.19 The development should combine houses and apartments to make efficient use of the available land and also provide a variety of housing tenure and types.
6.20 Dwellings should be designed to ensure that habitable rooms overlook the public realm and promote interaction. This also increases the sense of ownership, belonging and local community within the street environment.
13 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
Affordable Housing
6.21 In order to meet affordable housing requirements and ensure mixed communities, the developer should provide, in partnership with one or more of the Council’s preferred partner Housing Associations, an element of affordable housing. The amount sought will be 25% of the total number of units. This requirement will only be reduced or waived where it can be proved that the requirement would generally threaten the overall viability of the development.
6.22 The Council will have regard to the Wolverhampton Housing Needs Survey 2002, the Housing Needs Survey Update 2004 and the current Wolverhampton Housing Strategy when determining the type and tenure of affordable housing to be sought.
6.23 However, it is likely that the requirement will include a significant proportion of shared equity properties. The affordable housing units should be distributed across the site. There should be no noticeable difference between the open market and affordable housing in terms of the quality of the residential environment and the design of individual dwellings. The Council is due to adopt a Supplementary Planning Document on Affordable Housing during 2006, which will provide further guidance and advice.
Public Realm and Open Space
6.24 The public realm is the area accessible at all times to members of the public and it is the principal area used by people when moving around developments and urban areas. The quality of streets and public spaces is critical to the creation of a successful and vibrant area.
6.25 It is vital that the public realm is both well used and safe – it therefore needs to be convenient in its position and direct in its destination. Walking and cycling should enliven the realm and increase the use too. Buildings should also overlook the realm to provide surveillance and decrease the opportunity for anti-social behaviour.
6.26 The distinction between areas of public and private use should be clearly defined and understandable. Buildings should contain a streetscape and provide a sheltered and private realm to the rear.
6.27 Public open spaces should be designed to be an integral part of the scheme – attractive and connected. The spaces should have a clear function and use, both for immediate residents and for the wider community.
6.28 The open space should be designed in accordance with the Council’s Leisure Services guidelines to adoptable standards, having regard to the guidelines given in the Council’s Supplementary Planning Guidance Note 3.
6.29 Recreational open space in the area is of low quality and there is no equipped children’s play area to serve the locality (although there is a supervised adventure playground for older children). The John Roberts Open Space is large (1.8 hectares) but has a poor layout, being long and narrow. It also has surveillance problems. Therefore, it is proposed to create a new overlooked multi-functional park of approximately 1.8 hectares, accommodating a ‘local equipped area for play’ and ‘ball games area’, centrally located to serve the Master Plan area and the wider 14 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON neighbourhood. Links should radiate out from the park, providing pedestrian and cycle routes to other important facilities both within the Master Plan area and beyond.
6.30 The total new recreational open space requirement for the development will be calculated on the basis of the Revised Deposit Unitary Development Plan standard of 2.6 hectares per 1,000 residents. The new Park will meet only part of this requirement.
6.31 The remaining recreational open space requirement will be met through contributions to landscape, reconfiguring and improving recreational open space to the north east of the former Gas Works site, including the disused railway cutting and school playing fields.
6.32 Any planning application must demonstrate that the requirements of PPG17 and Proposed Modifications to the Revised Deposit UDP, Policy R5: Sports Grounds, have been met and that the proposal is in accordance with the Council’s Playing Pitch Strategy with reference to the Playing Pitch Assessment (September 2003) and any other available PPG17 compliant needs assessment and audit of open space, sport and recreation facilities. Any playing field sizes, orientation, safety margins etc. will need to comply with Sport England guidance.
Canal Side Development
6.33 The Birmingham Main Line Canal has the potential to contribute to a vibrant, attractive and accessible development in the heart of the Black Country. British Waterways have commissioned the Black Country Canals Tourism Strategy and a parallel Interpretation Strategy in February 2003 which should be referred to when design of the canal side area is being considered.
6.34 Any new development should face the canal rather than back on to it which could give rise to security problems. Future canal side proposals should positively address the water space to create a vibrant area which people will want to use and visit. In this context, the provision of moorings to generate further canal side activity would be welcomed. The principles of good design practice are set out in the British Waterways document, Waterways Access for All.
Nature Conservation
6.35 The intention is to retain and enhance the value of the disused railway cutting as both a Site of Local Importance for Nature Conservation and a Greenway. Any nature conservation value lost through infilling should be replaced through a sympathetic landscaping plan which should incorporate proposed mitigation measures. Development should also take account of the requirements in PPS9 (Biodiversity and Geological Conservation). Any further works will be designed to enhance the setting of the cutting, increase its usability and accessibility, improve its habitat value and appearance and compensate for any unavoidable losses. The Greenway will be retained as a continuous green, pedestrian and wildlife link between Millfields Road and Ward Street and cycle links will be incorporated where possible.
6.36 Attention should also be given to the wildlife signifance of the canal corridor to the south of the site with reference to British Waterways Planning Policy Document, Waterways and Development Plans.
15 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
Archaeological Requirements
6.37 There are six sites recorded on the Black Country Sites and Monuments record within the Master Plan area. Only at one are there likely to be any upstanding archaeological remains. The other sites are likely to be represented by buried archaeological deposits although these may have been affected by later industrial activity and ground levelling.
6.38 In view of the above and in line with the recommendations of Planning Policy Guidance Note 16, ( Archaeology and Planning ), a scheme of archaeological works designed to assess the significance of these remains should be undertaken. This should comprise:
• Desk-based assessment to define the location, nature and importance of the remains and the degree to which they are likely to have been affected by later activities
• Fieldwork to assess the condition of the remains
• Preparation of a mitigation strategy designed to ensure the survival of any remains during the development or their recording ahead of / during development
6.39 The work should be undertaken by a suitably qualified professional archaeological organisation according to a brief written by the Black Country Archaeologist who can make detailed plans of the site available on request.
Noise and Pollution
6.40 The far eastern triangle of the former Gas Works site is unlikely to be suitable for residential development, due to the proximity of noisy industrial activity on the Reliance Trading Estate. This should instead form a landscaped noise buffer area.
6.41 On the former Elm Energy and Maxxiom land, the residential development should also incorporate a noise buffer strip fronting the canal. The noise buffer could take the form of a tree-lined road, allowing dwellings to front onto the canal.
6.42 In all cases, noise and air quality assessments will be required to determine the extent of the buffer zones needed.
Public Art
6.43 The City Council is a ‘Percent for Art’ Authority (Revised Deposit Unitary Development Plan Policy D14). It encourages developers to allocate a percentage of the construction development cost of major developments towards the provision of works of art or craft for the benefit of the development and public in general.
16 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
6.44 Developers will be expected to liaise with the City Council before submitting planning applications to ensure the integral consideration of public art within the planning, design and construction process.
6.45 The City Council will expect developers to enter into an agreement to provide work(s) of public art or craft on the site. Developers should consider art or craft features to the value of a minimum 1% of total construction costs of the development.
6.46 The concept of public art does not necessarily mean a stand-alone piece of sculpture. Provision may range from a freestanding piece of art to embellishments or features within the fabric of the development itself. The Council’s Supplementary Planning Guidance Note No.16 on the Provision of Public Art should be followed.
6.47 Public art can reinforce a sense of place. This is an ideal opportunity for the developer to engage with the local community through the school and local representatives to develop concepts and ideas that are rooted in the locality.
Access for People with Disabilities
6.48 The City Council wishes to ensure that all of the new residential units have reasonable provision for a disabled person to approach and gain access into each dwelling from the point of alighting from a vehicle either within or outside the plot. In most circumstances, it should be possible to provide a level or ramped approach to the principal front door and preferably the rear or side doors also. If the topography is such that the route from the point of access to the entrance has a plot gradient exceeding 1 in 15, a stepped approach will be satisfactory.
6.49 External and internal doors should have clear opening widths ranging between 750mm and 800mm (depending on corridor/passageway widths). External doors should have wheelchair accessible thresholds. Switches and sockets should be provided at accessible heights between 450mm and 1200mm. A ground floor toilet should be designed so that the door opens outwards (with a clear opening width of 800mm) and is positioned to give wheelchair users unimpeded access.
6.50 The design of the scheme should also take account of access on to the canal for people with disabilities.
6.51 Developers and their designers should be aware of the new provisions of the Building Regulations Part M Approved Document 2004 Edition and, in particular, Section 6 on “Dwellings”, which came into effect on 1 May 2004.
Security and Community Safety
6.52 New development must be designed with ‘Secured By Design’ principles in mind and refer to the ODPM publication “Safer Places-The Planning System and Crime Prevention”. The development should ensure that both the public and private realm is perceived as safe and secure to encourage walking and cycling throughout.
6.53 ‘Secured By Design’ principles and Safer Places guidance need to be carefully balanced with the need for openness and permeability in urban design terms. 17 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
Phasing of Development
6.54 The regeneration of this area will need to be phased over a number of years. The phasing arrangements will need to be part of a Section 106 Agreement. Developers will be expected to enter into further discussions with the Council to determine the necessary infrastructure and other requirements for each development phase.
Master Plan Drawing
6.55 A Master Plan drawing applying the above development principles is attached at Appendix 5.
6.56 This shows the core housing areas, public open space zones and a proposed street pattern. The core Master Plan areas are shown at Table 1 below.
6.57 The Council considers that this represents an optimum land use arrangement for the Master Plan area and proposes that it should form the basis for the submission of a comprehensive outline planning application.
6.58 The onus will be on the developer to demonstrate whether a fundamental departure from this land use plan is justified.
18 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
Table 1: Core Master Plan Areas
MASTER PLAN AREA HECTARES
Housing (Net Development Area)
Former Gas Works site 3.25 Carillion land 5.81 City Council land (west of former Railway cutting) 1.34 City Council land (east of former Railway cutting) 1.29
New Park
John Roberts Open Space 1.82
Other Public Open Space
Former Gas Works site 0.63 Carillion land 1.50 City Council land (west of former Railway cutting) 1.25 City Council land (east of former Railway cutting) 0.51
Community/Retail
Priestfield Club & Local Shop 0.06
Other Areas
School Former Railway Cutting Landscaping Highway routes (within former Railway cutting) 5.14
TOTAL 22.6
19 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
7. ACCESS AND PARKING
Highway Design
7.1 The design of all roads, footpaths and car parking should primarily meet the interests of pedestrians and cyclists rather than motorists. The key is to develop street design that makes drivers feel it is normal to drive slowly and carefully. Features may include traffic calming, shared surfaces, trees and planters, benches and play areas.
7.2 The road design scheme should have regard to Design Bulletin 32 (Residential Roads and Footpaths) and Places, Streets and Movement – A Companion Guide to Design Bulletin 32. It should also comply with the Council’s own Guide to the adoption requirements for the design and construction of new residential roads.
7.3 The primary vehicular access into the development area will be from the A4126 Ettingshall Road with a secondary access from Ward Street. Ward Street will be restricted to buses and emergency vehicles at the Jibbet Lane Bridge with the bridge being controlled by traffic signals, which would include a phase to allow pedestrians and cyclists to cross the bridge.
7.4 A new vehicular access from Ward Street to the Bilston C of E Primary School will be sought with the existing link off Albany Crescent retained as an alternative secondary access to the school. This access should also serve any residential development planned in this area. A new vehicular access to the school will also be sought across the infilled part of the railway cutting, providing a link to housing on the former Gas Works site.
7.5 The opportunity should be taken to provide an active road frontage to the canal to improve its interface with the development. Pedestrian and cycle routes should also be established to increase the permeability of the scheme with the surrounding area and its important shopping and amenity interests.
Parking
7.6 Levels of car parking provision should accord with guidelines outlined in the Revised Deposit Unitary Development Plan and have regard to the guidance given in both PPG3 and PPG13. Parking provision may vary depending on the particular type of accommodation proposed. Safe and convenient cycle/motorcycle storage should also be incorporated into the scheme.
7.7 Vehicle parking provision should be designed to enhance the environment by careful attention to minimize its visual impact. Spaces should be within the curtilage of residential properties and visible from the house for convenience and security. However, parking should not dominate the street frontage.
7.8 Parking on the canalside edge and walkway will not be acceptable for visual amenity reasons.Parking on the other side of the canalside access road bordering housing will be acceptable, either well integrated within the curtilage of dwellings or within laybys frequently broken up with urban trees to soften the environmental impact.
20 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
Refuse
7.9 Refuse vehicles should be able to access all areas of the development. Refuse containers and wheelie bins can look unsightly when left in the street on a permanent basis. The design of buildings should include indoor storage space for refuse bins so that they can be hidden from view when not in use.
21 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
8. SUSTAINABLE DEVELOPMENT
8.1 Wolverhampton City Council is committed to building sustainable communities at the local level. Sustainability principles can affect the design of buildings, the layout and density of development, as well as how people travel to developments.
8.2 The developer will be expected to work closely with the Council to achieve good sustainable development practice, and an innovative approach will be welcomed. The developer will also share the wider aspirations of the Council to meet the underlying needs of the local community in terms of job creation, enhancing training opportunities and encouraging investment.
8.3 In order to integrate the principles of environmental sustainability into architectural design, the Royal Institute of British Architects has produced its Environmental Manifesto (2002). The planning and design of new development should be tested against the RIBA Environmental Checklist and Key Indicators of Sustainable Design to ensure that environmental impact is reduced to a minimum.
8.4 The following methods are examples of good practice and design:
• The Building Research Establishment’s Environmental Assessment Method (BREEAM) is a rating system for reviewing and improving the environmental performance of buildings, expressed on a scale of Pass to Excellent. BREEAM covers a range of building types, including offices, homes, factories and shops. Other building types can be assessed using a bespoke version of BREEAM. The domestic version of BREEAM, called EcoHomes, covers houses, apartments and sheltered accommodation and is sponsored by the National House Builders Council.
• The development should demonstrate good practice in energy efficiency and water conservation. High levels of insulation and small-scale renewable energy schemes such as solar panels, Biomass heating, small scale wind turbines, photovoltaic cells and combined heat and power schemes should all be considered.
• Management of water that collects on hard standing and roofs of new developments can help alleviate the surcharging of drains. This can be achieved using Sustainable Urban Drainage techniques (SUDS).
• Where the development proposes to drain into the existing system, consideration must be given to the level and impact of this drainage on the ability of the existing network to cope with this run-off.
• Development should use materials from sustainable sources (i.e. avoidance of tropical hardwoods in specifications, using those only accredited by the Forestry Stewardship Council FSC) as well as sourcing construction elements from within the region, and recycled materials wherever possible. On-site recycling of waste construction materials e.g. using separate skips for wood, metal, hardcore etc., should also be implemented during the construction phase.
22 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
• Promoting the use of appropriate lighting technology to minimize light spillage and light pollution levels.
8.5 Once complete, the housing development will have an effect on travel patterns. PPG13 requires these effects to be considered and alternative modes of transport to the private car, particularly those that attempt to promote sustainable transport and social inclusion, are encouraged. Hence, initiatives that encourage walking, cycling and the use of public transport should be considered and included in the overall design. Attention should also be given to integration with Council initiatives such as the ‘Safer Routes to Schools’, Local Road Safety Schemes, City Cycle Strategy and Residential/Workplace Travel Plans.
23 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
9. SECTION 106 AGREEMENT and DEVELOPER CONTRIBUTIONS
9.1 Developers will be expected to enter into a Section 106 Agreement under the following heads of terms before planning permission can be granted. ( This list is not necessarily exclusive and the Council reserves the right to amend this at the time a planning application is considered subject to public consultation.
Local Employment
9.2 In the interests of improving local employment opportunities, and reducing the need to travel to the construction site, the developer will be expected to work with the Council to prepare a Local Recruitment and Training Plan, which will be implemented during the construction phase.
Community Facilities
9.3 With the development being of significant size, contributions to meet the increased need for local community facilities will be sought. The most appropriate and viable form of contribution will be determined in consultation with the Wolverhampton Primary Care Trust, the LEA and other relevant organisations. New services required in the area include primary health care and childcare provision, facilities for young people and a community hall. The Council will progress discussions with local residents and relevant organisations to determine if these new services should be provided either by improving existing community buildings/sites (either on or off-site) or making a new site available.
Affordable Housing
9.4 The Council will require the provision of an element of affordable housing. The amount sought would be 25% of all units, unless otherwise agreed with the Council. A plan showing the location, type and tenure of the affordable housing units should be submitted with any full or reserved matters planning application.
Open Space
9.5 The landscape scheme will include the provision of a new Park of at least 1.8 hectares in size, in a central location to replace the existing John Roberts Open Space. This will include a ‘Local Equipped Area for Play’ and a ‘Ball Games Area’. The Park and any other significant areas of recreational open space will be adopted by the City Council for future maintenance subject to compliance with the Council’s Leisure Services guidelines and the payment of a one-off commuted sum representing 10 years maintenance of the site. Given the importance of the new Park to both new and existing residents, the Council’s strong preference is that the site of the Park should be transferred to the Council at an early stage of the development process, along with sufficient funds to design and create the Park and maintain all the facilities for 10 years.
9.6 Other areas of incidental and buffer open space may be maintained in perpetuity by a suitable management company or adopted by the Council, as appropriate.
Canal Side Development
24 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
9.7 Given the importance of the canal corridor frontage, the amenity and visual open space potential and proven experience of waterside adding value to a development, together with the expected increase in canal area use as a consequence of increased footfall, contributions should be expected towards the canal zone.
Sustainable Development
9.8 The City Council will expect a financial contribution to be made towards any necessary and reasonable measures needed to foster sustainable travel patterns and to also mitigate against any adverse impacts on the transportation network resulting from the development as a whole.
Public Art
9.9 The City Council will expect a minimum of 1% of the construction cost of the development towards the provision of works of art or craft for the benefit of the development and the public in general. Proposals should comply with the Council’s Supplementary Planning Guidance Note No.16: The Provision of Public Art.
Phasing of Development
9.10 A phasing plan of the development must be submitted as part of any reserved matters application. This will need to show infrastructure, access and other arrangements and aim to minimise nuisance and inconvenience to surrounding residents, businesses and organisations.
25
LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
10. PLANNING APPLICATION REQUIREMENTS
10.1 Prospective developers are encouraged to hold early discussions with the Council, which operates a coordinated service for all aspects of the development process. The developer will be responsible for obtaining all necessary planning permissions, building regulation approvals and any other relevant consents.
10.2 The Council is seeking comprehensive redevelopment of the Master Plan area with a mix of uses as set out in this Supplementary Planning Document. Applications for planning permission must contain sufficient detail to demonstrate that the key objectives of this Supplementary Planning Document are adequately met.
10.3 The Council’s requirement will be for a comprehensive planning application covering the whole of the Master Plan area. An outline application covering land use and access based on the Master Plan will be acceptable.
10.4 The Council has issued a Screening Opinion that a Strategic Environmental Assessment will not be required for the development.
10.5 Prospective developers must satisfy themselves about ground conditions and undertake a full Site Investigation into these aspects. The site investigation should consider the likely presence of former mining hazards, physical and chemical contamination, soil gas and also any risk to ground water receptors. The format of these investigations, and any remedial action, should be agreed in writing with the Council’s Environmental Services prior to the development commencing. The results of such investigations will need to be submitted with any planning application.
10.6 A written Design Statement must be submitted with a planning application, as set out in Planning Policy Statement 1. The design statement should not only provide a descriptive analysis of the proposals, but also set out how the design(s) will satisfy the requirements set out in this brief. The design statement should be submitted in a form that demonstrates how the proposals respond to the site, the locality and policy context and the design codes. A Landscape Strategy Statement shall also be submitted with the application.
10.7 A Playing Field Assessment must be provided to indicate the future arrangements to serve the Bilston C. of E. Primary School and Ettingshall School which enjoys some limited shared use of the site. This should indicate how the proposals relate to PPS1 and PPG17 in addition to the Council’s Revised Deposit Unitary Development Plan.
10.8 A Waterspace Strategy will be required for the canal zone to ensure that the canal and the adjoining development are considered holistically.
10.9 The developer will be required to submit a full Survey of the site, including comprehensive coverage of levels and plot boundaries, trees and other features on the site to allow a proper assessment to be made of any proposals.
10.10 A Transport Assessment, including an Access Statement, will also need to be submitted in support of a planning application. This should assess the implications of travel demand generated by the proposed site uses and the vehicular and pedestrian access arrangements from the existing networks and surrounding area. The developer
27 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON is encouraged to hold early discussions with the City Council’s Transportation Development Officers to determine an appropriate scope for the Transport Assessment and Access Statement.
10.11 An Ecological Survey will also be required to establish the current nature conservation value of the site. The minimum necessary will be a Phase 1 habitat survey. This should include a detailed survey of all existing trees on the site including their condition indicating any statutory protection and proposed tree loss. The current ecological survey information held for the Master Plan area can be provided on request.
10.12 Further planning application requirements will include Noise and Air Quality assessments considering, in particular, the potential impact of adjoining industrial activities (particularly the Reliance Trading Estate and Polypipe site) on future residents.
10.13 A Flood Risk Assessment must be submitted to the Environment Agency to demonstrate among other things, that surface water balancing can be achieved. This should be undertaken with reference to PPG25 (Flood Risk and Development), CIRIA Document 522 Appendix E, and the Environment Agency’s Interim Code of Practice.
10.14 If it is intended to seek to reduce or waive the affordable housing requirement, a comprehensive Financial Viability Assessment should be submitted to justify this. The applicant would be expected to fund an independent evaluation of such an assessment.
10.15 Should a planning application be submitted for the development before the Unitary Development Plan Inquiry Inspector’s report is published, the proposal would have to be advertised as a departure from the current Unitary Development Plan, as the majority of the Master Plan area is currently allocated for employment purposes.
28 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
11. WHO TO CONTACT
11.1 The City Council’s Regeneration and Environment Service operates a project management system for significant projects. This provides a single initial point of contact for all technical and design aspects of the development process
11.2 The Project Officer for the Ward Street Master Plan site is Phil Shuttleworth who may be contacted at:
Project Implementation Regeneration and Environment Wolverhampton City Council Civic Centre St. Peter’s Square Wolverhampton WV1 1RP
Telephone: 01902-555629
Facsimile: 01902 555637
Email: [email protected]
29 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
12. STATEMENT OF PUBLIC CONSULTATION
12.1 A draft Master Plan was received as a basis for public consultation by the Cabinet of Wolverhampton City Council at its meeting on 27 July 2005. The document was prepared jointly by consultants Planning Perspectives, RPS Design, First City and JBP Public Relations in collaboration with the City Council.
12.2The public consultation which took place from 21 November to 16 December 2005 comprised the following elements:
• Leaflet drop with scheme summary and contact details to 3000 local residents • Static exhibition in the local area staffed at advertised times • Mobile exhibition located in Bilston Town Centre on two occasions, the Local Area Forum and eight other venues • 41 letters to interested bodies and individuals • Public meeting • Statutory press notice • Press release which appeared in the local newspaper • Posting on the City Council website • Freepost address and telephone number available for comments throughout the consultation period
30 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
13. STATUS OF DOCUMENT
12.1 This document has been the subject of public consultation as described above and has been adopted by the City Council as a Supplementary Planning Document for the purpose of submitting and determining future planning applications at the abinet meeting on 15 March 2005
Costas Georghiou Chief Planning and Highways Officer Regeneration and Environment
31 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
14 APPENDICES
(A) Sustainability Appraisal
1. Introduction and Methodology
Under the Planning and Compulsory Purchase Act 2004, a Sustainability Appraisal must be undertaken for each Local Development Document, including SPD’s (PPS12 Para .3.14 – 3.18). The purpose of the SA is to promote sustainable development by examining how the policies and proposals of the SPD / LDD contribute to the aim of sustainable development. By identifying any issues at an early stage it is possible to amend the guidance to ensure that it is as sustainable as possible.
The sustainability appraisal methodology currently used in Wolverhampton accords with advice contained in “Planning for Sustainable Development: Towards Better Practice”(1998) and the new Government documentation PPS 12 – Local Development Frameworks (2004). The procedure is based on the approach taken to Sustainability Appraisal of the Revised Deposit UDP. The three strategic criteria or “assets” used are:
- Environment - People and Society - Economic Well Being.
Within the UDP sustainability appraisal there are a total of 22 objectives - 12 under the environmental heading; 6 under the people and society heading; and 4 under the economic wellbeing heading. This list is based on the General Sustainability Objectives set out in the Regional Sustainable Development Framework (Jan 2005), adapted to reflect the Wolverhampton situation and embrace issues relating to equalities. The objectives have been used to create a matrix for purposes of the appraisal (see below)
2. Options
The former Gas Works site, which forms part of the Land at Ward Street, Bilston SPD (to be referred to as Ward Street SPD) area, was allocated for housing in the First Deposit UDP. This allocation was therefore subject to a sustainability appraisal. The broad proposals set out in the Ward Street SPD were put forward in the Revised Deposit UDP and were subject to a sustainability and equality appraisal. However, the site did not at this stage include land to the north east of the former railway cutting.
At both First and Revised Deposit stages, the option of retaining parts of the site in employment use was discounted on the grounds that no part of the site is suited to continued employment use and that residential use would maximise the potential of the site. The site is located in a primarily residential area, within a reasonable distance from a metro stop, with access to Bilston Town Centre and the local shopping centre, in accordance with sustainability principles.
The decision to expand the site boundaries at each stage in the process was taken in order to achieve a more comprehensive and sustainable scheme. For example, the inclusion of proposals to replace John Roberts open space with a new Park, infill the railway cutting and reconfigure the school playing fields were specifically included to enhance the recreational and ecological value of open space in the locality, which is currently poorly served. The former railway cutting also currently gives rise to community safety concerns, which the Ward Street SPD proposals seek to tackle. The former tyre-burning plant on Ettingshall Road had also given rise to local environmental concerns. The proposal has prompted the demolition of this plant and provided an opportunity to find an alternative use for this site.
32 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
Therefore, it can be demonstrated that a range of options for the site have been considered and tested against sustainability criteria. This process has resulted in development of the current proposals, which represent the best option for the site and the local area.
3. Results
The detailed proposals set out in the Ward Street SPD have been considered against each of the criteria listed in the matrix (see Table 1). This process was carried out by the Council’s Planning Policy Team once the draft Ward Street SPD had been prepared.
The proposals will have a positive or neutral effect on all criteria. In particular, the proposal will help to create an improved built and natural environment, make best use of previously developed land and help to create a more sustainable local community. Parts of the site have been subject to significant land remediation work and it is likely that further work will be required, including treatment of mineshafts.
The site currently contains areas of ecological interest, particularly within the former railway cutting. There are proposals to infill and re-landscape part of the cutting and to carry out improvements to other parts. These works will be strictly conditional upon the availability of detailed ecological reports and securing sufficient mitigation measures, including protection of important species and habitat creation. These mitigation measures will create an overall enhancement in nature conservation value across the site.
Any final proposal will have to demonstrate that the effects of noise and air pollution resulting from the proximity of industrial areas will be mitigated sufficiently. This should therefore give rise to a neutral impact.
Therefore, the proposal will have an overall positive effect on sustainability objectives.
33 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
Table 1: Sustainability Appraisal Matrix for the Land at Ward Street, Bilston Supplementary Planning Document (SPD)
Sustainable Development Impact of Comments Indicator used Aim Activity - - 0 ? + + - + 1. Environment Make optimum use of land ! The proposals will bring an extensive Brownfield Land area of vacant and under-used reclaimed (ha) brownfield land into productive use. Enhance qualities of land ! Improved public realm and access to Quality of the and the natural the canalside. Decontamination of environment environment land for development. Improvements to appearance and ecological value of former railway cutting. Protect and enhance the ! Creation of high quality development Quality of the quality of the built with significant new areas of public built environment environment realm, including a new Park. Protect and enhance the ! No buildings or features of historic Quality of the historic environment interest on site. However, the reused historic development will respect and buildings and enhance the canalside. features Protect and enhance air ! Removal of industry and former tyre Monitoring quality burning plant and redevelopment for pollution levels. residential, open space and community uses. Walking/ cycling routes and enhanced public transport access. Protect and enhance water ! Development will address an Monitoring of quality and maintain water extensive canal frontage and water quality resources promote increased use. Encouragement of good development practices e.g. SUDS. Protect flood plains and ! Development to address canal and Compliance with water courses promote increased use and activity BW code of practice Protect and enhance ! The SPD ensures that any Ecological biodiversity and geological development involving the loss of Surveys features habitat will provide enhanced replacement. Ecological surveys have been undertaken and further surveys are required. Maximise the efficient use ! NA NA of minerals Minimise the use of waste ! SPD promotes waste minimization Monitoring waste and recycling Maximise the efficient use ! Guidance and targets presented to BREEAM and production of energy promote energy efficiency and use of renewable energy Reducing light pollution ! SPD promotes the use of lighting to Monitoring light minimise light spillage pollution levels. 2. People and Society Enhance public health for ! Provision of new housing, including Monitoring health all affordable housing, and a community indicators facility. Enhance education ! Improved configuration of primary Monitoring opportunities for all school playing fields and improved education school access and security. Creation indicators of new catchment population.for school. 34 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
Enabling the provision of an ! Significant contribution to the Housing adequate range of housing creation of a mixed and sustainable monitoring to meet the needs of the community in the local area, through system people introduction of private housing into a deprived area characterized by Council housing. Density of 40 dph allows for the provision of a balanced mix of houses and flats. The ability to access (with ! The site is located close to an Travel surveys the minimal need to travel) existing Local Centre and within a a broad range of services, reasonable distance of Bilston Town facilities and jobs to meet Centre and a Metro stop. The peoples basic needs. scheme also involves provision of new local community services and on and off site access improvements. Maintain and improve ! Incorporation of “secured by design” Crime and fear safety, perception of safety principles. In-filling and of crime surveys and community well being. improvements to the former railway cutting will significantly improve community safety. Provide for equality of ! NA opportunity and good race relations. Economic Wellbeing Supporting and growing ! NA local economy by fostering an advanced manufacturing sector with a competitive services sector Support a stable and ! NA growing regional economy and regeneration initiatives Encourage sustainable ! NA industries Enhance social inclusion ! The proposed development will uplift Index of Local and develop a more an area suffering from deprivation Deprivation and equitable balance of and poor local facilities. similar indicators prosperity across the city
35 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
(B) Screening Report for Strategic Environmental Assessment
1. Background
The Council is obliged to determine whether the Ward Street SPD should be subject to a Strategic Environmental Assessment, under European SA / SEA Directive.
A Strategic Environmental Assessment (SEA) must be undertaken on any land use plan which sets the framework for future development consent of projects. There are exceptions to this requirement for planning documents that determine the use of a small area at local level and for minor modifications. However, the Council must have determined that the planning document is unlikely to have significant adverse environmental effects. This takes the form of a screening process based on a standard set of criteria.
A final decision on whether an SEA is required can only be taken following consultation with four designated statutory bodies; The Countryside Agency, English Heritage, English Nature and the Environment Agency. The process of consultation on this document will effectively fulfill this purpose.
2. Results
Table 2 demonstrates how the Ward Street SPD proposals relate to SEA directive criteria. The Council’s conclusion is that the Ward Street SPD should not be subject to a Strategic Environmental Assessment. The main reason for this is that the SPD relates only to the Ward Street site, which is relatively small, and the proposals will not affect any important environmental assets.
36 LAND AT WARD STREET, BILSTON, WOLVERHAMPTON
Table 2: Land at Ward Street, Bilston: Screening for Strategic Environmental Assessment
SEA Directive Criteria Response The degree to which the plan or programme Not applicable – the SPD relates only to the sets a framework for projects or other Ward Street Master Plan area. activities, either with regard to location, size and operating conditions or by allocating resources. The degree to which the plan or programme Not applicable – the SPD relates only to the influences other plans or programmes Ward Street Master Plan area. including those in a hierarchy The relevance of the plan or programme for The site has no specific significance, the integration of environmental considerations in particular with a view to promoting sustainable development. Environmental problems relevant to the plan Any negative environmental effects will either or programme be mitigated or will be related to construction works and therefore short-lived. The relevance of the plan or programme for None the implementation of community legislation on the environment. (e.g. plans and programmes linked to waste management or water protection) The probability, duration, frequency and Negligible effects which should only last a reversibility of the effects. few years. The cumulative nature of the effects. Negligible The secondary nature of the effects. Negligible The magnitude and spatial extent of the The site is 25 ha. Any temporary negative effects (geographical area and size of the effects will extend to the local neighbourhood population likely to be affected) only. The value and vulnerability of the area likely to be affected due to : - Special natural characteristics or cultural None heritage - Exceeding environmental quality standards or limit values. - The effects on areas or landscapes which have a recognised National, Community or International protection status.
37