Report of the Lead Members for Housing and for Planning

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REPORT OF THE LEAD MEMBERS FOR HOUSING AND FOR PLANNING

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TO:

REGENERATION INITIATIVES CABINET WORKING GROUP ON 1st OCTOBER 2007

ORDSALL AND LANGWORTHY LOCAL EXECUTIVE ON 2ND OCTOBER 2007

ORDSALL AND LANGWORTHY COMMUNITY COMMITTEE ON 6TH NOVEMBER 2007

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TITLE: ORDSALL DEVELOPMENT FRAMEWORK: PROGRESS REVIEW

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RECOMMENDATIONS:

• That the report be noted.

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EXECUTIVE SUMMARY: It is approaching three years since the Development Framework for Ordsall was endorsed as the basis for future regeneration work in the area. The report records the progress made to date on implementing the Framework, identifies threats and new opportunities that may affect future work checks that the Framework principles remain valid.

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BACKGROUND DOCUMENTS:

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ASSESSMENT OF RISK: Medium. Delivery of the regeneration programme is dependant on the market success of the proposed new development.

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SOURCE OF FUNDING: The capital income from proposed sales plus section 106 monies will pay for the proposed infrastructure works.

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LEGAL IMPLICATIONS: Reviewed by Michelle O’Reilly.

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FINANCIAL IMPLICATIONS: Reviewed by Peter Butterworth. Appropriate revenue funding will need to be identified to adequately maintain the enhanced facilities to be maintained by the council; the costs have yet to be identified and will be reported in due course.

COMMUNICATION IMPLICATIONS: There is frequent feedback to local residents through Community Forum and newsletters. LPC Living take the lead in promoting the area to prospective new residents.

VALUE FOR MONEY IMPLICATIONS: N/A

PROPERTY: Implications for the council’s service property will need to be included in relevant Service Property Strategies and the corporate Asset Management Plan

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HUMAN RESOURCES: N/A

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CONTACT OFFICERS:

Barry Whitmarsh, Housing and Planning Directorate. 793 3645

Ross Spanner, Neighbourhood Manager. 603 4090

Christine Duffin, Salix Homes. 779 8991

Phil Holden, Urban Vision Partnership. 779 6069

Simon Ashdown, LPC Living. 872 2622

Jonathan Drake, LPC Living. 786 8468

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WARD TO WHICH REPORT RELATES: Ordsall

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KEY COUNCIL POLICIES:

Enhancing Life in Salford

• Giving residents in the city a choice of quality housing to meet their needs
• Promoting sustainability through appropriate development, conservation and improvement of the city’s environment

Creating Prosperity in Salford

• Promoting the city as a location of choice for people and investment
• Maximising public and private investment to regenerate the city

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ORDSALL DEVELOPMENT FRAMEWORK

PROGRESS REVIEW

1INTRODUCTION

1.1It is approaching three years since the Development Framework for Ordsall was endorsed as the basis for future regeneration work in the area.

1.2The purpose of this report is to record the progress made to date on implementing the Framework, identify threats and new opportunities that may affect future work and to check that the Framework principles remain valid.

2BACKGROUND

2.1In March 2003, the city council entered into a partnership with developer Legendary Property Company (LPC), to develop proposals for the regeneration of the Ordsall estate, based on the redevelopment of vacant and underused land in council ownership.

2.2The Development Framework for Ordsall was prepared by BPTW architects, on behalf of the council and LPC. BPTW carried out survey and consultation work, including a walking audit of the estate. An exhibition of their ideas for the area was held in April 2004, at Ordsall Hall. Over 300 people attended the exhibition and 40 people completed and returned questionnaires. The proposals generally received overwhelming support.

2.3Ordsall Langworthy Community Committee and the council cabinet formally endorsed the Framework in October and November 2004.

2.4The framework set out proposals for the use of vacant land in the area and for improvements to roads and footpaths, parks and open spaces and community facilities. The document was not intended to be a blueprint for the development of any particular site. It proposed a number of environmental and infrastructure improvements that would benefit the estate, identifies sites suitable for development, set out key principles to guide development and illustrated possible building footprints.

2.5In summary, the key proposals were:

• Environmental and infrastructure improvements throughout the estate.
• New development on currently vacant land.
• New development to create natural surveillance to new and existing streets.
• Improve ease of access through estate.
• New primary school and children’s centre.
• New retail centre on Trafford Road.
• New community facilities.
• New houses and apartments, with an emphasis on family housing and affordability to existing Ordsall residents.
• Longer-term opportunity for mixed development on Ordsall Riverside.

Key Issues

2.6The reports to community committee and cabinet in 2004 identified five key issues that would affect the success of the Framework.

2.7The number of new dwellings to be built and their type and tenure, needed further discussion. In 2004, there were around 2,000 dwellings in the Ordsall estate, most of which were social rented. Planning permission had recently been granted for over 1,000 new apartments, on Trafford Road and Ordsall Lane, which were expected to be for private sale.

2.8The development framework did not specify a proposed number of new dwellings. BPTW considered that up to 1,300 new properties could potentially be accommodated within the estate; however this figure would only be achieved if all the available sites were developed and a high proportion of apartments built. In practice, the number of new dwellings was expected to be lower: between 500 and 800, including as many affordable family houses as practical. This figure excluded LPC Living’s Quay 5 development, which had already received planning permission.

2.9The framework concentrated on the main Ordsall estate, but also illustrated the potential for mixed-use redevelopment of the existing industrial and commercial area on Ordsall Riverside, and creation of a new footbridge over the Canal to the Cornbrook Metrolink stop. However, development of this area was seen as a lower priority than completing regeneration of the existing estate.

2.10The framework plan indicated several alternative locations for public services, such as health and community facilities. The site for a new primary school was decided. However, further work was needed to determine the scale of other community buildings needed to serve the growing population of the estate and of Salford Quays. Once the scale of service provision was decided, it was recognised that there would need to be further debate with service providers and residents on the location of facilities. Potential tensions were recognised between the benefits of co-locating services (for example, on a community campus centred around the school and proposed Trafford Road shops) and the benefits of dispersing services across the estate.

2.11The size and location of play areas and open spaces would need careful consideration. The framework illustrated a level of provision that is consistent with the council’s emerging open space strategy. However, some play areas were shown located very close to existing dwellings, which could cause neighbour nuisance. It was noted that existing residents might argue for the retention of some of the areas of open space shown as being developed.

2.12The proposal to open up a new east-west road between Trafford Road and Ordsall Lane and to improve the existing north-south pedestrian route needed careful design in detail. It is important that they do not become used for rat-running, encourage fast traffic or create insecure escape routes from crime scenes.

The Partnership Agreement and Infrastructure Budget

2.13The formal legal agreement between the city council and LPC Living was completed in May 2006. 19 potential sites were identified for development within the area, ranging from small infill sites to substantial proposals on the Radclyffe, St Clements, Hulton Street and Ordsall District centre sites.

2.14The agreement gives LPC Living the exclusive right to submit development proposals for these sites for a fixed period, with a deadline in May 2011. Development of approved schemes could continue for several years after 2011.

2.15The council are committed to reinvesting capital receipts in the Ordsall area. It was estimated, at that time, that potential receipts from these sites, including anticipated section 106 monies could realise an investment fund for infrastructure works totalling £7.615 Million. This total included both anticipated S106 contributions from partnership projects and a proportion of contributions from other developers’ schemes in the surrounding area. Current forecasts are set out at paragraph 3.28.

2.16An indicative programme of infrastructure works was identified, with the majority of funds allocated to:

• Highways works: specifically the East- West vehicle route and the North –South pedestrian link.
• Public open space improvements and environmental enhancement
• Contribution to the costs of constructing the new primary school and children’s centre
• Acquisition of land and premises to secure development sites.

3PROGRESS TO DATE

Consultations

3.1Following the original consultation on the emerging Framework, in April 2004, the council and LPC have jointly held six further consultation events, regarding implementation of individual aspects of the Framework:

• Options for sites in South Ordsall -July 2005.
• Proposals for development of vacant site at Hulton Street – December 2005.
• Draft proposals for Radclyffe School and District centre sites, health service issues and aspirations for public services – October 2006.
• Proposals for development of site at Robert Hall Street – April 2007.
• Design workshop on refurbishment of Monmouth Park –June 2007.
• Proposals for the conversion of St Ignatius Church to housing and development of the adjacent Croft site –July 2007.

3.2There have also been consultations regarding the Masterplan for Ordsall Park.

3.3Attendance at the individual events has been varied, only 17 people attending the Hulton Street event. Various attempts have been made to maximise participation at subsequent events, including the use of a mobile consultation run by Ordsall Community Arts. This has proved successful with 261 people visiting the October 2006 event.

3.4Overall, the various consultation events have indicated a broad level of support to the individual proposals. Only one proposal has attracted significant local opposition: a proposal to redevelop the site of former shops on Paris Avenue with low cost housing (and that opposition was not identified by the South Ordsall consultation event); development options for that site have been deferred for further consultation.

3.5Consultation will continue to be held as and when individual projects are being considered.

Development Progress

3.6Quay 5: Predating the Development Agreement, and launched in January 2005, Quay 5, consists of 231 one and two bedroom city style apartments. The scheme sold out within 6 weeks of the launch. Aimed at First Time Buyers, prices started at £79,950 and included a secure car parking space and a concierge service. The design of the scheme introduced a totally new style to Ordsall showing it as a place on the move upwards.

3.7Primrose Hill Community Primary School and Children’s Centre: Outline planning permission for a new primary school and children’s centre, to replace the existing Radclyffe and St Clements’s Schools and the family centre, was granted in December 2004. The building is nearing completion and will open in September 2007.

3.8Radclyffe Mews: Planning permission for development of the former Chetham Close flats and day nursery sites was granted in September 2006. Located overlooking the Grade 1 listed Ordsall Hall, it is anticipated that this development of 34 new homes will be completed in the autumn of 2007. Consisting of three 2 bed apartments and thirty one 2 and 3 bed townhouses, the development was sold off-plan in just 8 weeks at the end of 2006 primarily to residents who lived or worked in the M5 postcode area.

3.9Prices for a 2 bed apartment started at £99,000, for a 2 bed townhouse £117,950 and for a 3 bed townhouse £136,950.

3.10Hulton St: Planning permission for development of the neglected open space and sites of Collingburn Court and Park House, north of Ordsall Park, was granted in April 2007. Construction of this scheme is expected to start in late September 2007. When completed, it will include 260 new homes as well as a tree-lined boulevards and a new square. It is located overlooking Ordsall Park and it is hoped will encourage more people to use this important green space.

3.11The development will be built in five phases and will consist of a mixture 1,2 and 3 bed apartments and 3 and 4 bed townhouses. The design is very contemporary and the completed scheme will be unique within Ordsall providing a benchmark for all future schemes to follow.

3.12Robert Hall Street: LPC are currently finalising proposals for the redevelopment of the site of the existing Family Centre and adjacent vacant site, following the consultation event in April 2007. Subject to approval of the Development Proposal Notice and planning consent, this proposed development will introduce 22 new family homes onto land currently considered an eyesore and magnet for anti-social behaviour. It will also help to introduce traffic calming measures to Robert Hall Street as well as providing new frontage to this section of the road.

3.13St Ignatius Church: LPC have carried out feasibility studies on the conversion of the redundant church and rectory into dwellings. Neither building is in council ownership. However, such a scheme is not financially viable in isolation and consideration is being given to also developing the neighbouring croft, which is in council ownership, to cross-fund works to the church, which is an important local landmark. Public consultation on the proposals is currently being carried out.

3.14Radclyffe School Site: The next large site to be developed is due to be the former site of Radclyffe School. The Framework identifies this as the site for new retail facilities, replacing the run down District Centre. Following the consultation event in October 2006, LPC are developing detailed proposals for a scheme including shops and residential accommodation. The school closed at the end of the summer term and arrangements are currently being made to demolish the redundant buildings. It is anticipated that development proposals will be submitted to the council later this year with the target of starting redevelopment in summer 2008.

3.15Remaining Council–owned Sites: There are two other large sites scheduled for redevelopment: the sites of the existing District Centre and St Clements School. LPC are currently carrying out stakeholder consultation and feasibility studies for these sites. The district centre site is the agreed preferred location for a new community hub, replacing the existing health centre and library, and would also include new housing, as well as retaining the British Legion. The St Clements’s School site would be redeveloped for housing.

3.16The District Centre remains of poor appearance and detracts from the appearance of the area. LPC intend submitting an outline planning application for its redevelopment later this year, in order to demonstrate commitment to its redevelopment. However, submission of a Development Proposal Notice to the council for a detailed scheme will not happen until there has been further public consultation.

3.17There are also several smaller redevelopment sites across the estate, with no firm programme for consultation and design development.

3.18Development by Third Parties: The scale of development implemented under the Development Agreement is small compared to the scale of recent development in the area by other developers. Apartment developments have recently been completed, or are nearing completion, at the Quays campus site on Trafford Road and on sites on Ordsall Lane.

3.19Updated Framework Drawing: The original Framework drawing has been amended to reflect new developments completed, underway and committed. A copy is attached.

Infrastructure Progress

3.20The main commitments to the partnership infrastructure budget so far are a contribution of £2.3 million to the cost of the new primary school and highway works, to a value of some £2.6 million, associated with the housing developments at Taylorson Street and Hulton Street.

3.21Improved Through Routes: The agreed highway works include the first phases of works to enhance the north-south pedestrian and cycle route through the estate, currently under construction, and to create a potential new east-west vehicular route, to be constructed as part of the Hulton Street development.

3.22Mini sweeper: One of the conclusions from the first consultation in 1994 conducted by the Salford City Council and LPC Living partnership was the concern by local residents over the amount of litter on the estate. The result was the funding through the Development Framework of an extra street sweeper, known locally as the ‘Ordsall Litter Bug.’

3.23Earlier this year, children from the three primary schools were invited to create a design for this street sweeper and the result is now seen every Monday, Wednesday and Friday helping to keep the streets of Ordsall clean. Councillor Maureen Lee said of this initiative: “This is a great example of how environmentally conscious young people can be at the heart of a regeneration initiative. It also shows tremendous creativity and the striking litter bug design brings real character to our street cleaning activity.”

3.24This is just the start of a campaign to help clean up the streets of Ordsall. The ‘bug’ is to be used to spearhead a campaign to make Ordsall a litter free zone. Under the banner ‘Have you caught the litter bug?’ a series of initiatives are planned later this year to encourage local residents and children to minimise the amount of litter on the streets of Ordsall.

3.25Other Works: The infrastructure budget has also contributed to the improvement of Regent Square Park and the River Irwell Walkway. The former Longford Church has been acquired and demolished to facilitate redevelopment of the District Centre site.

3.26Future Infrastructure Works: As discussed below, the abnormal costs of remediating contamination on the Hulton Street site significantly reduced anticipated income, to the extent that implementation of the scheme requires cross-subsidy from other sites.