HS2 PHASE 2 STATIONS LCR Development Reviews Sheffield Victoria Station 27 January 2014 Contents Executive Summary 1. Introduction 1.1 London & Continental Railways 1.2 Background 1.3 Development Reviews 2. HS2 Station Proposal 2.1 Urban Context 2.2 Proposed HS2 Station Design 3. Wider Development Area 3.1 Planning Policy Context 3.2 Land Ownership 3.3 Development & Market Background 3.4 Economic Growth 4. Analysis 4.1 Station Design 4.2 Connectivity and Interchange 4.3 Station & Interchange - Conclusions 4.4 Development & Delivery 5. Summary of Recommendations 6. Conclusions Appendix 1: Sheffield Local Plan: Pre-Submission Proposals Map Appendix 1: HS2 Victoria Sheffield City Council Ownership Plan 1 Executive Summary In autumn 2011, High Speed 2 (HS2) requested a presentation of the experience of London & Continental Railways Limited (LCR) in relation to delivering regeneration around the HS2 stations. From this presentation, LCR was asked to suggest how it could assist HS2 in promoting regeneration and development through Government’s investment in HS2 and LCR has undertaken Development Reviews of all the Phase 1 and Phase 2 Stations. The Phase 2 consultation route provides for a station at Sheffield Meadowhall, adjacent to the Meadowhall shopping centre, close to junction 34 of the M1 motorway. The site is approximately four miles north east of central Sheffield and three miles south-west of Rotherham, and linked to both (and other regional centres) by existing rail links. Sheffield City Council has lobbied for an additional or alternative station to be located closer to the city centre at the former Victoria Station site. It is understood that this proposal was rejected at optioneering stage by HS2 Ltd for a number of reasons, including the cost of additional tunnelling, additional journey times and the views of neighbouring authorities. Sheffield City Council has, nonetheless, requested LCR to undertake a Development Review of the regeneration opportunities that might arise from a station at Victoria. A costs/benefit comparison of this location compared to Meadowhall is specifically not a matter for this report, which instead includes a review of the earlier HS2 feasibility work together with observations on the proposed station design, transport interchange, regeneration opportunity and other issues for consideration. In addition, the planning context and the market background in the locality have been reviewed. The potential economic benefit of a station at Sheffield Victoria has been the subject of a variety of previous reports, which estimate between 7,000 and 9,000 net new jobs could be created, together with 900 homes, all close to a ward which is in the top 1% of deprived wards in the UK. Views differ on how much, if any, of this would be delivered without an HS2 station, however it is LCR’s opinion that a station would be a significant catalyst to achieving this. The Victoria location offers major opportunities for urban regeneration (on a par with, if not greater, than the most regeneration-friendly of other HS2 stations), including: - The proximity to the centre of the fifth largest city in the UK, and the most significant in South Yorkshire, providing strong underlying economic drivers, - The history of successful recent regeneration in this part of the city and associated mixed use occupational market, - The availability of land and sites to accommodate growth, - Existing good connections to the city and the region, with opportunities to further enhance these, - The potential to address existing deprivation and dereliction, - Riverside locations and heritage buildings and structures. There are barriers to regeneration (such as land assembly etc), however, indicating that a purely market-led approach may not be successful, and degrees of public sector intervention will be required. In particular, the current connectivity (notwithstanding relatively short distances) between the 2 Victoria location and both the city centre and the Sheffield Midland Station requires attention and, in particular, rail connections to adjoining regional centres. Improving these regional connections in to Victoria will be key to maximising wider economic benefits. Victoria is an exceptional location for a station, with its vantage point and commanding views over the city. There are some challenges and opportunities for the design of a well-connected and integrated station interchange at this location. Addressing these in a comprehensive and integrated manner can deliver a landmark HS2 station and transport hub at Victoria - one which, combined with complementary high quality urban realm and retail, could create an attractive place and destination in its own right – providing the catalyst for regeneration in Sheffield and the region. Should an HS2 station be located at Victoria, LCR recommend that the regeneration arm of HS2 engages with Sheffield City Council and SYPTE in the joint masterplanning and delivery of an integrated programme of transport and land-use developments at Victoria that will optimise the benefits for Sheffield City and the region. 3 1. Introduction This report has been prepared by London & Continental Railways Limited (LCR) for Sheffield City Council. 1.1 London & Continental Railways LCR is a wholly owned subsidiary of the Department for Transport (DfT). It was formed in 1996 as the successful bidder for the Channel Tunnel Rail Link (now known as High Speed 1) PFI contract. LCR was responsible for the successful delivery of High Speed 1 on time and to budget. LCR retains ownership of the Government’s 40% share of Eurostar International Limited and has been restructured as a DfT- owned property and development company. Since inception, LCR has employed a small stations and property development team responsible for facilitating large scale regeneration around the new international stations most notably at King’s Cross and Stratford in London. The team was also involved as commercial client for the HS1 stations and promoted synergies and opportunities between the stations and the surrounding development sites. 1.2 Background “HS2 Regional Economic Impacts”, the KPMG report produced for HS2 in September 2013, suggests that investment in HS2 could potentially generate £15billion of additional output per year for the British economy in 2037 (2013 prices), by providing cities and regions with better connections. It also recognises that these cities and regions will need to have the capacity to accommodate the resultant growth in economic activity, including the availability of skilled labour and land in the right locations. Fullest realisation of the potential benefits may therefore require complementary changes to create an environment in each city in which businesses can develop. This may include, among other things, the enhancement of connectivity (at local, city and regional level), additional development to accommodate office, retail, residential, social and other uses (requiring major land-use developments or regeneration schemes at some locations) and appropriate facilities and resources for the development of the necessary local skills. Thus, HS2 Ltd can help to maximise the benefits of HS2 by working in partnership with local planning, transport and economic development authorities for each station to ensure: The HS2 stations are properly integrated with good local, city and regional connections This should create an efficient local transport network that builds on and distributes the benefits of the high-speed link. In some instances, it may require investment in new or enhanced connectivity. It should place each HS2 station at the heart of an efficient transport hub that is as convenient and attractive as possible – recognising that interchange is typically the least attractive part of a journey, and poor interchange can be a disincentive or barrier to mobility, eroding the benefits of good connectivity. These transport facilities are carefully integrated into surrounding land-uses and land-use developments 4 This may provide a unique opportunity to deliver high-value development at and around the HS2 stations, that takes greatest advantage of its location, and that will contribute to the economic development and, where appropriate, regeneration of the area. This should incorporate high-quality public realm improvements that will enhance the value of the property development, and the quality of life of those who live, work and play in the area, as well as those who travel through it. Altogether potentially creating an economically and socially vibrant destination in its own right. These investments are carried out in a way that supports and enables (or in some cases unlocks) wider regeneration schemes, to maximise the long-term economic benefits for the city/region This will be most effective and beneficial when done within the context of a masterplan or shared vision for the wider area – the developments at and around the HS2 stations can then provide a potent nucleus of earliest economic development that will support and kick-start development and regeneration across the wider area. An appropriate skills and training programme is jointly established with the local economic development authorities This should be designed to support the longer term economic growth in the city/region, and to ensure that maximum social benefits are realised in the city/region, by providing local people with a range of necessary skills. At some locations, this may involve collaboration with local industries, especially