EXCHANGE GREENGATE, SALFORD

Planning Guidance

December 2005

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Exchange Greengate, Salford:

1.            Introduction  1

Planning Context 1

Salford UDP   1

Encouraging Better Design  2

Central Salford URC   3

Chapel Street Regeneration Strategy  3

River Irwell Corridor Study 

2.            Strategic Principles  54

Introduction  54

Key Principles & Strategic Objectives  54

Transportation  65

Relationship with the rest of Manchester City Centre

Sustainability  65

3.            Area Specific Guidance  87

Mix of Uses  87

Urban Form, Density and Massing  87

Public Realm    87

Pedestrian Connectivity  98

Planning Obligations  98

Planning Application  98

 

 


1.                               Introduction

1.1               Exchange Greengate is set in the heart of Central Salford, which is currently undergoing significant change under the direction and guidance of the Central Salford Urban Regeneration Company (URC). 

1.2               Situated within Manchester City Centre, the Greengate area represents the main bridging point between Salford and Manchester.  The regeneration of the Exchange Greengate area is one of the top priorities for the URC.

1.3               Exchange Greengate has been recognised for its potential to become a dynamic new mixed-use part of the Regional Centre.  Recognising this potential, Salford City Council and its core Exchange Greengate landowning partners, Ask Property Developments and Network Rail, have joined forces and prepared a Development Framework for the area, aimed at providing a contextual setting within which to bring forward individual projects to shape and define an exciting and diverse new part of the Regional Centre. The Development Framework has been formally reviewed by Cabe, who view it as “exemplary” (see appendix 1).

1.4               This Planning Guidance has been prepared to set out the guidelines which the Council as local planning authority will apply in considering applications for planning permission within the area. At this stage it represents non statutory guidance, but it is set within the framework provided by the emerging replacement UDP for Salford, and will be translated into LDF documents in due course, and as appropriate.

1.5               The Guidance draws on the work done in preparing the Development Framework. It is intended to assist the URC as it moves forward in implementing key elements of the Development Framework, as well as the local planning authority and developers

1.6               The guidance will be a material consideration for the City Council when determining planning applications and other matters in the area. 

1.7               Applicants will be expected to demonstrate how their proposals address the issues covered in the guidance, along with the wider policy framework established in the replacement Salford Unitary Development Plan (UDP), planning documents forming part of the Local Development Framework, the Regional Spatial Strategy for the North West, and national planning policy.

1.8               The guidance takes full account of the opportunities presented by the area’s location within the City Centre, and its location within the Chapel Street regeneration area (which the URC will focus on in terms of its own delivery, as it sees this area as key to the transformation of Central Salford).

Planning Context

Salford UDP

1.9               The policies contained in the Salford UDP form the basis for the proposals contained in this guidance.  The UDP policies and other relevant adopted strategies will be taken into consideration in approving the detailed design and implementation of the redevelopment proposals for Exchange Greengate.

1.10           A review of the Salford UDP is currently underway and has now reached an advanced stage. Following an Inquiry and receipt of the Inspector’s report and recommendations the city council will be taking the replacement UDP through a modifications process culminating in adoption by July 2006.

1.11            The policies set out in the Replacement UDP, as proposed for modification by the inspector, provide the clearest statutory planning framework for the Exchange Greengate area at the present time.

1.12            The following policies as suggested for modification by the inspector and endorsed by the city council provide the key policy “ statement in the emerging replacement UDP so far as this planning guidance for Exchange Greengate is concerned.

Policy MX1: Development in Mixed-Use Areas

1.13            This policy promotes the Exchange Greengate area as suitable for the development of a vibrant mixed area with a broad range of uses and activities. Appropriate uses for the area are identified as including housing, offices, tourism (including hotels), leisure, cultural uses, education, community facilities, retail and food and drink uses (subject to compliance with associated retail and leisure policies), knowledge-based employment, live-work units, and essential infrastructure and support facilities.

1.14            The reasoned justification to the policy explains that the area will be increasingly seen as a key quarter of the city centre, for example through improved physical and functional integration with the rest of the city centre, and co-ordinated management. It highlights that there are strong commercial opportunities across the area. The potential to take more advantage of the riverside location, to improve connections within the area, to utilise the viaduct as a positive townscape feature, and to provide significant levels of residential accommodation, are all emphasised.

Policy MX2: Chapel Street Frontage

1.15            Policy MX2 requires that development along Chapel Street should incorporate active uses at ground floor level. Such uses will be required to be consistent with the other policies and proposals of the UDP, and may include the following:

(a)                Retail;

(b)                Financial and professional services;

(c)                Non-residential institutions; and

(d)                Culture and tourism.

Policy EA2: Knowledge Capital

1.16            The Exchange Greengate area falls within the Arc of Opportunity of the Knowledge Capital initiative, as identified on the Proposals Map of the replacement UDP. Within that Arc of Opportunity, there will be an emphasis on the provision of employment opportunities, particularly in the following sectors:

·                     Financial and professional services, and other office-based uses;

·                     Creative, cultural and media industries;

·                     Communications;

·                     Research and development; and

·                     Higher education.

Encouraging Better Design

1.17            The replacement UDP provides a comprehensive suite of design policies, tackling specific issues such as respecting context, the relationship of buildings and public space, waterside development, and tall buildings.

1.18            In addition to the UDP, the Council has also produced other advice and guidance on planning related matters.  These documents are also taken into account in the determination of planning applications although they do not carry the same weight as policies within the UDP.

1.19            The guidance note entitled Encouraging Better Design explains that the Council is committed to securing high quality design in all new developments across the city.  It states that poor design is a valid reason for the refusal of planning permission.

1.20            The note suggests that design should be considered at the earliest possible stage in the development process.  The guidance explains that planning applications should be accompanied by design statements and supporting visual information.

1.21            In the case of major proposals or where there is a high profile design issue to be addressed, planning applications may be referred to a formal ‘design and review process’.  This may involve a design review panel convened by the Council or the Commission for Architecture and the Built Environment (CABE).

1.22            Applications for development in the Exchange Greengate area will need to comply with the guidance that is set out in this note and should be of high design quality.

Central Salford URC

1.23            The Central Salford URC aims to transform Central Salford over the next 20 years, guided by a new vision and regeneration framework. It intends to unlock hundreds of millions of pounds of private sector investment leading to thousands of new job opportunities. The URC is a private/public sector partnership led by the private sector and actively supported by its founder members - Salford City Council, English Partnerships and the North West Regional Development Agency (NWDA). The URC covers an area of over 2,000 hectares, including the Exchange Greengate site.

 

1.24            The transformation of Central Salford will include dramatic improvements to the city’s infrastructure, the development of business premises, mixed-tenure housing (private and affordable housing), improved schools, safe and inspiring open spaces, new community and leisure facilities, retail outlets and an improved transport infrastructure. The aspiration is to create a world-class living, working and leisure environment. The URC team is now working with stakeholders to develop a draft strategic regeneration framework.

1.25            The Central Salford Regeneration Framework will be an important material consideration for the Council in determining planning applications in the Exchange Greengate area.  Applicants will be required to demonstrate that their development proposals comply with the Framework and contribute to meeting its overall objectives.

Chapel Street Regeneration Strategy

1.26            The Chapel Street Regeneration Strategy is a major integrated urban regeneration initiative aimed at the economic, physical and social renewal of the historic core of the city of Salford. The strategy was launched in May 1998, and its implementation is overseen by a Partnership Board drawn from the public, private and voluntary sectors together with local residents.

1.27            The Exchange Greengate area is located within the Chapel Street Regeneration Strategy area. 

1.28            The strategy consists of eleven integrated programmes set within the following four main themes:

n              Living Environment;

n              Economic Development;

n              Social Inclusion; and

n              Arts and Culture Development.

 

1.29            The promotion of new development opportunities on vacant sites and in vacant and underused buildings is one of the strategic objectives of the Regeneration Strategy. However, it is fundamental to the strategy that this is balanced against the other objectives, and that any increased pressure on local services and infrastructure is not allowed to have a negative impact on other users of the area. It is also important that the new developments themselves have an adequate infrastructure and high quality environment to enable them to be successful.

1.30            Proposals for development within the Exchange Greengate area will need to assist in achieving the key aims of this strategy, thus playing an important role in meeting the wider regeneration objectives for the Chapel Street area.

 

2.                               Strategic Principles

Introduction

2.1               Having considered the policy framework for Exchange Greengate, this section of the planning guidance considers the overall Strategic Principles that will underpin the redevelopment of the site.

2.2               The key aim for Exchange Greengate is to deliver the comprehensive regeneration of the 13 hectare site and create a distinctive, new urban quarter, combining high quality commercial and residential properties with leisure uses, public spaces and new waterside environments.  The redevelopment should ensure that the new urban forms are interwoven with existing architecture and streetscapes to create an area that is both distinctly modern and heritage rich.

Key Principles & Strategic Objectives

2.3               Development proposals within Exchange Greengate should demonstrate accordance with the following overall Key Principles and Strategic Objectives for the area:

n              To create a cohesive, vibrant, mixed use area, with its own distinctive sense of place and character, drawing energy and activity from within the adjoining parts of Manchester City Centre.

n              Deliver long term qualitative change in the built environment, thus enhancing the profile and environment of Exchange Greengate, promoting it as a thriving economic and residential location.

n              Create an area which is lasting and memorable, where people want to live, work and invest, and which has social and cultural opportunities for all.

n              Create clear physical linkages between development sites, to encourage economic and social integration with surrounding areas, including other parts of Manchester City Centre, and beyond.

n              Promote a well conceived movement pattern and structure, urban in scale and of exceptional design quality, with flexibility to evolve and change over time.

n              To achieve a series of core infrastructure and public realm interventions, which in combination will ensure that Exchange Greengate can function as a thriving part of the City Centre.  The Urban Cove, and new Greengate Square, and the linkage between them, are critical in this respect.

Relationship with the rest of Manchester City Centre

2.4               Salford and Manchester form part of the Regional Centre.

2.5               Over the years the River Irwell and the viaducts of the former Exchange Station have acted as unwelcome barriers to economic activity and investment.  They have divided Salford and Manchester where the two cities should be joined.  Exchange Greengate is a dead space dominated by car parks.

2.6               The vision for Exchange Greengate is of a new city centre place where Manchester and Salford are joined rather than divided.

2.7               Exchange Greengate’s immediate proximity to the core retail and cultural offer of the Regional Centre and the long standing history of connectivity between the cities of Salford and Manchester, in and around the Exchange Greengate area, combine to create a comprehensive regeneration opportunity unique in scale and proportion and of clear national significance.

2.8               The vision for the Exchange Greengate area is focussed on re-connecting the cities of Manchester and Salford, both physically and symbolically, to ensure that the city centre, as a whole, continues to grow in stature.

Transportation

2.9               The following key principles are central to the transportation strategy to be prepared and implemented in Exchange Greengate.

n              The role of the River Irwell will be redefined as a point of inter-connection between Salford and Manchester, with an extended and enhanced pedestrian and cycle route along part of the river edge.

n              A grid of pedestrian and cycle friendly streets is envisaged throughout the Greengate site.

n              Exchange Greengate is exceptionally well placed for public transport provision, including heavy rail and Metrolink services at Victoria Station.  Measures will need to be undertaken in order to ensure that these exceptional links are retained and, where possible, enhanced.

n              Buses will continue to form the backbone of public transport connections between central Manchester and the Chapel Street corridor.

n              The creation of the Urban Cove will necessitate the transfer of the existing temporary bus station possibly to an on-street bus facility along Chapel Street close to the junction with Greengate.

n              Over the longer term, stops in Greengate Square serving the main routes towards Salford Central Station and the proposed extension to the City Centre MetroShuttle service could be provided.

n              The delivery of the Urban Cove could provide new facilities for river boats and river taxis, with services capable of linking the City Centre to Salford Quays.

n              Car parking should remain the predominant use for the railway viaduct vaults with the overall levels for current provision retained by improving functionality.

n              Bespoke car parking provision for new development blocks is envisaged within the curtilage of individual schemes, the majority of the new city blocks offering the potential for underground or concealed frontage parking.

n               Sites for new multi-storey car parking options will need to be considered.

Sustainability

2.10            Sustainable development is acknowledged by the UK Government in Planning Policy Statement 1 (PPS1) as being the core principle underpinning planning

2.11            All proposals for development within the Exchange Greengate area should accord with the principles of sustainability and should facilitate the delivery of sustainable development.

2.12            In view of this, planning applicants should consider the introductions of the following mechanisms, amongst others:

n              The installation of a combined heat and power electricity supply;

n              The use of the River Irwell as a low energy cooling source;

n              The use of benchmark BREEAM ratings as minimum development standards within all new buildings; and

n              The consideration of photovoltaic cells/panels and vertical axis wind turbines for high level rooftops.

2.13            These and other mechanisms for minimising carbon emissions should be encouraged as development progresses within the Exchange Greengate area, as should opportunities to enhance the role of the River Irwell as an important ecological corridor. Tree planting is encouraged as part of landscaping schemes and public realm works, in order to support the area’s biodiversity, offset carbon dioxide emissions and enhance the appearance of the area.

2.14            These measures will ensure that the redevelopment of Exchange Greengate accords with Policy ST1 of the Replacement Salford UDP, which promotes the creation and maintenance of sustainable urban neighbourhoods.

 

3.                               Area Specific Guidance

Mix of Uses

3.1               The following mix of uses will be promoted in the Exchange Greengate area, in line with Policies MX1 and MX2 of the Replacement Salford UDP:

n              Commercial Development:  The commercial development is not intended to provide direct competition to the traditional business core of the city centre, but to supplement that offer.

n              Residential Development: Exchange Greengate has the potential to offer a high quality living environment in the heart of the city centre.  It is assumed that new residential activity will consist predominantly of 1,2 and 3 bedroom apartment dwellings.

n              Car Parking: Any development must take into account the need to ensure that car parking provision, both general provision for city centre users, and area specific provision for new and residential commercial occupiers, must be adequately catered for.  An incremental approach should be taken towards the removal and re-provision of existing car parking facilities as development needs dictate.

n              Retail/Leisure: The Exchange Greengate area has potential to accommodate a sensitive mix of smaller scale leisure and retail opportunities.  Retail and leisure components that come forward should complement and strengthen the current city centre offer rather than compete with it.

 

Urban Form, Density and Massing

3.2               The redevelopment of Exchange Greengate should take on the established urban form of Manchester City Centre, with its dense and compact city blocks, generally 8-10 storeys in height, punctuated with the occasional higher tower block. 

3.3               Typically, the generally narrow street widths across the Greengate area lend themselves to predominantly six storey building heights, perhaps rising to over ten storeys adjoining public open spaces and reducing to four storey accommodation around historic buildings.

3.4               A string of taller buildings are envisaged along the northern and eastern boundary of the area, creating an identifiable  and recognisable skyline in the vicinity of Victoria Station.

3.5               Where taller buildings are developed, they will range in height from twelve to thirty storeys , generally positioned at the corners of urban blocks and to the perimeter of the area to reduce overlooking and overshadowing. 

3.6               New forms of development should be introduced on top of the existing railway viaduct

3.7               Flexibility will be permitted within the individual composition of block massing, allowing variation of height relative to aspect, street width and proximity to large scale public spaces.

3.8               Striking the right balance between commercial/retail and leisure and residential uses throughout the area will help to create an urban environment that can accommodate 24-hour activity.

 

Public Realm

3.9               The delivery of a number of core infrastructure and public realm interventions are key to the vision to develop Exchange Greengate as a thriving part of the city centre.  The key proposals supporting this objective are as follows:

n              The Urban Cove: the creation of a new and unique waterside environment on the River Irwell around which an exciting and dynamic leisure environment could flourish.  A key entrance point to Exchange Greengate from Manchester City Centre.

n              New Greengate Square: the creation of a vibrant new urban space within the heart of Exchange Greengate, to provide a new focal point around which mixed use development could flourish and grow.

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n              Greengate Vaults: opening up the existing railway viaduct vaults along the alignment of Greengate itself to provide new retail and commercial opportunities and link up the Urban Cove and Millennium Square.

n              Pocket Park(s): local urban space(s) in the heart of Exchange Greengate, providing a space for seating and play areas, representing an important feature of the local environment.

Pedestrian Connectivity

3.10            A grid of pedestrian and cycle friendly streets will be promoted throughout the Exchange Greengate area.

3.11            New development within Exchange Greengate should respect the existing street pattern both of the historic Greengate triangle and also the neighbouring  Georgian and Victorian street grid.  In this way, the historic thread between old and new will remain, maintaining continuity in terms of place names and established routes and connections.

3.12            Development schemes should provide a safe attractive well cared for public realm which will encourage people to walk.

3.13            Clear direct pedestrian routes to bus stops and modes of public transport should be provided, taking into account public transport including the Metrolink Light Rail System, Victoria Train Station and bus services in the area.

3.14            Development proposals should take account of the following principles which will promote pedestrian connectivity throughout the site:

n              Pedestrian areas should be readily visible from drivers, residents and other pedestrians;

n              Measures should be introduced in order to slow traffic, resulting in safer environments for pedestrians;

n              Shared surfaces utilising changes in materials can avoid conflict in movements between vehicles and pedestrians;

n              Priority should be given to pedestrians travelling through the site;

n              Footpaths should lead to areas people want to travel to; and

n              Pedestrian and cycle routes free from vehicular traffic flow should be considered and incorporated into development schemes.

3.15            An extended and enhanced pedestrian and cycle route should be provided along most of the edge of the River Irwell, regularly linking back into the network of minor streets and squares.

Planning Obligations

3.16            All developments that are brought forward within Exchange Greengate will be required to contribute proportionately to the required high level of infrastructure necessary to serve the overall site, particularly the Urban Cove, the New Greengate Square and the links between them, through the use of planning obligations. This will ensure that any additional pressure on the local environment, services and infrastructure, occurring as a result of new development, will be reduced or ameliorated as much as possible. Further guidance will be provided in the city council’s Planning Obligations Supplementary Planning Document.

Planning Application

3.17            All planning applications for development on the Exchange Greengate site should be accompanied by the following:

n              Planning application forms (5 copies);

n              Relevant site location plans – 1:500/1:200 scale including site red edge outline plan, elevation plans and layout plans.  A masterplan will be required for outline applications comprising indicative details supported by a design statement;

n              Planning supporting statement – justifying the development in National, Regional and Local planning policy terms;

n              Design Statement demonstrating that the proposals comply with the Council’s design policies;

n              Traffic Assessment and Green Travel Plan; and

n              Environmental Assessment where appropriate (as directed under the 1999 EIA Regulations).

3.18            Pre-application submission discussions with Salford City Council Officer’s will form an integral element of the design and planning process. Salford City Council operates a Development Team approach  in such discussions, bringing together the relevant professionals. It will also involve officers from the URC in key discussions.

3.19            Where relevant, full consultation with the local community and businesses should be undertaken prior to the submission of a planning application in order to foster community involvement in the planning process. The City Council is also concerned to ensure that existing businesses are involved in discussions on relocation opportunities at an early stage in the development of specific proposals.