6. Policies, Proposals and Meeting the AAP Objectives

This chapter sets out the detailed policies and proposals which will deliver the vision, the objectives and the strategy of this AAP. The policies will be used to guide new development and supplement existing national, regional and local planning policies. The policies include:

Policy 1: New Housing Sites

Policy 2: Flood Risk

Policy 3: Property Improvements

Policy 4: Areas of Environmental Improvement

Policy 5: New and Existing Employment Sites and Retailing

Policy 6: Design Quality

Policy 7: Movement and Safety

Cross cutting themes such as health, sustainability and climate change are dealt with in each policy as appropriate.

The AAP Proposals Map is shown overleaf (Map 5). A plan showing the current Pendle Replacement Local Plan designations within the area is shown in Appendix 4 alongside a plan which shows what the Replacement Pendle Local Plan designations and the AAP designations will be after the adoption of the AAP.

The key development sites in this policy section of the AAP are as follows:

• Riverside Mills - proposed as primarily housing
• Part of Throstle Nest Mill - proposed as mixed use employment / residential
• Giles Street area adjacent to Throstle Nest Mill - proposed as housing
• Land off Cooper Street - proposed as housing
• Land to the east and west of Walverden Water - proposed as a new urban park

A summary of how each policy contributes to the overall objectives of the Bradley AAP and how it will be delivered is provided at the end of each policy. Further details about costs, delivery and implementation of the Bradley AAP are provided in Chapter 7. Details of how the plan will be monitored and reviewed are provided in Chapter 8.

Existing Section 106 agreements will be used to support the delivery of the AAP. Further information is provided in Chapter 7.

One of the key objectives of the Bradley AAP is to transform the local housing market.

To do this it identifies several key sites for new housing. Together these will accommodate a range of property types that help to extend and diversify both the choice and quality of housing in the area.

This new housing will contribute to improved community cohesion and the long-term sustainability of the area by providing housing that members of the local community would otherwise leave the area to acquire. It may also help to encourage a wider range of social, ethnic and income groups into Bradley.

New housing will also contribute to improvements in public health, help to create livelier and safer streets and reduce everyday running costs.

The AAP will provide new housing at three locations in the AAP area. Whilst development on these sites will primarily replace the 132 dwellings to be cleared within the AAP area, additional dwellings will be supported where they help to deliver the objectives of this plan and will contribute to the successful regeneration of the area.

The results of the Burnley and Pendle Strategic Housing Market Assessment (SHMA) (Fordham Research, 2008) indicates an overall need for 45% of all new housing to be affordable. However, the SHMA (at table 12.2) indicates that there is a lower need for affordable housing in Bradley when compared to the figures for the borough as a whole.

The SHMA also acknowledges that in practice, 45% is not a realistic target. A follow-up study was commissioned to consider the viability of providing affordable housing on different types of sites across the borough (Fordham Research, 2009). This indicated that in urban areas without subsidy or financial assistance a target for affordable housing could not reasonably be set under current market conditions.

Following on from the study that focused upon the viability of sites across the Borough, it was decided to engage Fordham Research to produce a further piece of work which would focus upon the viability of the 3 housing sites identified by the emerging AAP. The reason for this was to ensure that a robust and deliverable approach to the provision of affordable housing, that would be responsive to future changes in the housing market over the AAP timescale (up to 2021), was included in the final document.

Fordham’s report on the Bradley AAP area (2010) acknowledges the difficulty in setting affordable housing targets given the current state of the housing market and a lack of certainty over when and in what form the market will recover. However, the report concludes that a 20% affordable housing target is likely to be achievable with some variation in the amount of affordable housing grant and some increase in house prices. On the basis of the report’s recommendation, a 20% affordable housing target is proposed by the AAP however the policy acknowledges that where it can be shown that 20% is not economically viable a lower percentage of affordable housing will be accepted.

Where it is feasible to set an affordable housing target the SHMA shows that the greatest need in Pendle is for social rented housing (80%)⁽²¹⁾ . There is some need for intermediate housing⁽²²⁾ (17%) and low cost market housing (3%).

The Council will work in partnership with a Registered Social Landlord (RSL) to provide affordable housing on sites which have been assembled using funding from the HMR programme.

The SHMA also considers what type of housing is required to help balance the housing market at a ward level. For Bradley it shows that there is a need for the majority (51% or more) of new housing to have 3+ bedrooms. This is not surprising given the predominance of 2-up 2-down bedroom terraced properties in the area. There is also high local demand for larger family homes from the many Asian Heritage households in the AAP area.

A key part of the Housing Market Renewal programme is to encourage better designed housing. RPL has established key standards that should be achieved in new development projects that it has helped to fund. These are: Building for Life (Silver), Code for Sustainable Homes (Level 3) and Secured by Design. The Council will encourage developments which achieve Building for Life (Silver) and Code for Sustainable Homes (Level 3).

With regard to Secured by Design, an accredited development will negate crime and safety problems which are prevalent in Bradley. It is therefore expected that new developments will achieve accreditation unless there are other design factors, for example the need to allow permeability through sites, which preclude this. Whether or not full accreditation is achieved the Council will expect applications to be supported by information indicating how steps to negate crime and maximise security have influenced the design of proposed development.

The quality and design of new housing will be important to the success of all new developments and will be informed by Policy 6: Design Quality and additionally, in the case of the Riverside Mill site, the approved Planning and Development brief.

The former Riverside Mills site has been vacant since 1999. It is derelict and has a negative impact on the area. The site is designated for employment use in the Replacement Pendle Local Plan (2001-2016). However, a commercial assessment of the site by Petty Chartered Surveyors (May 2007) concluded that:

"an industrial or commercial redevelopment scheme of this site is unviable due to several factors including competition from more favoured industrial sites within the area and the proximity of densely built up areas of housing along with poor road access".

Large scale employment uses would be compromised by the different levels on the site and poor access to it by road. However, whilst redevelopment of the site wholly for employment may not be considered viable, this would not preclude a mixed-use scheme where a small proportion of complementary uses would help to deliver much needed housing on this key site.

In this AAP it is intended that the large Riverside Mills site will accommodate a wide range of property types, significantly extending the choice of housing in the area. New housing will also open up the site helping to increase linkages between the Fleet Street and Regent Street areas.

The current link between Dalton Street and Crawford Street lacks activity. It is particularly unattractive to pedestrians after dark. New housing along these two streets will help to create a more attractive and safer link between the northern and southern parts of the Bradley AAP area.

It is understood from the Environment Agency and Pendle Borough Council's Environmental Health Team that a number of noise complaints have been received relating to the Norpol Recycling site adjacent to the Riverside Mill site. A noise survey should be submitted with applications for development on the Riverside Mill site to ensure that any adverse impact on future occupants is minimised.

As a former industrial site the Riverside Mill could potentially be contaminated. Planning applications for development of the site should be accompanied by a desk top study to assess whether the site is contaminated.

The housing adjacent to Throstle Nest Mill bounded by Bankhouse Road, Bradley Road East, Elm Street and Queen Street (collectively known as the Giles Street area) will be cleared and comprehensively redeveloped. This area suffers from particularly poor housing conditions, high vacancy levels and a degraded environment.

The Throstle Nest Mill complex presents a blank facade of stone walls to the surrounding area. Partial redevelopment of this site to provide a mixed use element along one side would present an opportunity to more effectively integrate the employment uses with the surrounding residential area. Remodelling the area in this way would involve the redevelopment of the three storey mill off Throstle Street for residential / employment use and the weaving shed would be demolished to provide new housing.

New housing in this location, orientated towards the new park alongside Walverden Water will help to create an attractive edge to this new area of public open space. New housing overlooking the park will help to make it a more secure 'defensible space' reducing crime through better urban design.

The Bradley AAP proposes residential allocations on the following sites:

a. Riverside Mill site,

b. Giles Street area (the streets adjacent to and west of Throstle Nest Mill),

 c. Part of the Throstle Nest Mill Site (west of Queen Street),

 d. Cooper Street site.

To satisfy part c) of the exception test additional flood risk reviews have been undertaken for each of the sites by JBA Consulting. These reviews have been considered by the Environment Agency who are satisfied that residential use could be accommodated safely subject to the flood risk mitigation measures identified in these reports (detailed in the policy below) and to be agreed at the detailed application stage. Applicants for development on sites a, b and c above will therefore be required to submit a Flood Risk Assessment (FRA) to demonstrate how flood risk will be managed in accordance with the policy overleaf.

It is important to note that the information produced by JBA provides a more accurate picture of actual flood risk for the four development sites than the Environment Agency's Indicative Floodplain Map. It is important that developers refer to this information and the maps produced by JBA which are shown at page 36-39 of the Technical Paper, in conjunction with the Environment Agency's information.

Both Hendon Brook and Walverden Water are designated as main rivers by the Environment Agency. The Environment Agency have also made it clear that their consent will not be forthcoming for any development over the Hendon Brook culvert, and development within 8 metres either side of the culvert will also be restricted, i.e. new buildings and private gardens will not be permitted.

To help reduce surface water flow rates Sustainable Urban Drainage systems (SUDs) such as soft landscaping, permeable pavements, green roofs, water butts, etc, should be incorporated in the design of new or regenerated development.

Policy 2 contributes to the following AAP objective:

Objective 11: Consider the impact of climate change and, in particular, flood risk. The issues stage of the AAP preparation highlighted potential flood risks within the AAP boundary. Flood risk assessments will be expected to accompany any applications for new development on sites affected by this risk. The AAP proposes that part of the flood plain is redeveloped for open space.

In addition to delivering new houses within the AAP boundary, the AAP proposes a programme of external property improvements. The purpose of the improvement work is to help improve the condition of the properties and to enhance the image, desirability and perception of the area. This should help to raise confidence in the housing market and encourage wider private investment.

Blocks of properties have been identified as being suitable for improvements based upon their location, their condition or their state of repair (see map 7 below). Improvements are targeted:

i. along the key gateway routes within the area because of their importance to the overall perception and image of Bradley and Nelson more widely.

ii. around proposed redevelopment sites to provide an enhanced setting for new developments.

iii. in areas where the condition of the housing stock is particularly poor. Improvements to these properties could extend the life of the properties and improve the quality of life for those people living in them.

To tackle this issue the Council has an 'Improvement for Sale' scheme which seeks to bring long term vacant properties back into use. The scheme involves the Council buying by negotiation the vacant property from its current owner. It is then fully renovated to Decent Homes Standard and sold, in the first instance to owner occupiers who are affected by clearance. The scheme is being and will continue to be used to tackle problem properties within the AAP boundary.

The Pendle Open Space Audit 2008 shows that in respect of ‘surpluses and deficiencies’ Bradley ward (the ward with the highest population in Pendle at 6735 persons) possesses the greatest deficiencies of parks, woodlands, natural green spaces, amenity green spaces and cemeteries of any ward in Pendle. This is particularly the case in the Bradley AAP area where there is only one equipped play area.

The only existing open space and equipped area for play in Bradley AAP area at Hey Street has long term recreational and leisure value and will be retained and enhanced.

The gateway hubs contain a number of key community facilities such as the youth and community centre, parks, churches and shops. The Final Bradley Masterplan Report stated that improvements to these areas through a series of interventions including public realm and open space enhancements, selective building improvements and potential highways alterations could have positive impacts through relatively minor interventions, helping to lift the quality of Bradley. Improvements to these areas will be pursued, initially concentrating on the Leeds Road / Hildrop Road junction 'hub'. A 'Design and Regeneration Framework' has been developed to guide improvements at this particular hub and guidance will be prepared for the other two.

Bradley and indeed Nelson faces an ongoing challenge of addressing worklessness, prompting economic growth, fostering enterprise and increasing wage levels and prosperity. Sustainable economic growth and increased household incomes is a key element of a sustainable neighbourhood in Bradley.

Trees will be planted on the northern and eastern boundaries and either side of the vehicular entrance to the employment site. The steep ground at the rear will be planted with shrubs, therefore making the best of limited landscaping opportunities on the site which will retain its high stone wall boundary to most sides. The site is adjacent to civic uses, existing industrial uses and the railway. Employment use on this site is therefore desirable and compatible with the wider area.

The bulk of Throstle Nest Mill will be retained for employment use, though a mixed-use element at part of the site west of Queen Street would be supported in order to more effectively integrate the employment uses with the surrounding residential area. This would involve the conversion of the 3 storey mill off Throstle Street for residential / employment use and the weaving shed bound by Throstle Street / Bankhouse Road would be redeveloped for new housing.

In the case of the smaller north light mill and multi-storey mill in the western corner of the Mill complex, to the west of Queen Street, the study indicated that a variety of uses such as office, studio, residential or live/work may be suitable for this site. It is expected that a mixed-use redevelopment scheme would be made up of a combination of these use types.

Retail facilities on Scotland Road which serve the local community of Bradley and are part of the retail corridor leading to Nelson Town Centre are identified on Map 9. The local shopping frontage identified on the plan is protected by Policy 26 of the Replacement Pendle Local Plan which resists non-shopping uses and this retail protection would unaffected by adoption of this AAP.

Objective 2: Maintain and enhance the local shopping and business offer within the Bradley Priority Action Area, link local residents to job opportunities and improve the local skills base. Policy 5 supports the creation of new employment space on the vacant site off Bradley Hall Road and the protection of the majority of the existing Throstle Nest Mill complex.

Objective 9: Secure the productive use of vacant land and buildings to improve the urban environment. Policy 5 will bring into use vacant land which will improve the environment.

(Also see Chapter 7: Costs, Deliverability and Implementation).

In recent years, there has been much research into the value of good design^(29). There is strong evidence that good design produces better economic, social and environmental returns for everyone involved, from residents and local authorities to developers and investors. Good design makes places work, giving residents more enjoyable lives, reduced crime levels, a more sustainable environment and greater civic pride,⁽³⁰⁾ for which there is a great need in Bradley.

RPL have produced a guidance book entitled 'Raising Design Quality in Pennine Lancashire' which is intended to assist professionals developing schemes in regeneration areas such as Bradley, to ensure excellent design is intrinsic to every stage of the development process ⁽³¹⁾.

There are many facets of design which should be considered in the design of all new developments in Bradley. Good design will take into account other objectives that affect people's quality of life by:

• Helping to conserve nature.
• Improving energy efficiency and reducing greenhouse gas emissions and using water sustainably.
• Reducing opportunities for criminal activity.
• Helping to prevent or reduce the impact of flooding.
• Using sustainable local materials that add character and blend well with surroundings⁽³²⁾.

According to a new report from CABE and Arts & Business, "too much development today lacks imagination and needs the creative, lateral thinking of artists" ⁽³³⁾.

Pendle Council has commissioned an 'artist in residence' for Bradley who is based at the local primary school. They will help to facilitate the involvement of residents in the regeneration of the area and will work creatively alongside design teams for the new housing developments, public realm improvements, etc.

The policy has been prepared utilising the Bradley Intensive Urban Assessment carried out in 2006 to help guide the development of the AAP. The Intensive Urban Assessment split Bradley into several character areas (see Map 10 overleaf) based upon their physical built form and townscape. It provides the following summary guidance for each character area which should be considered in the design of any proposals for that area:

• Fleet Street area – this area is highly cohesive and consistent in terms of its layout, architectural character and housing quality. The cohesiveness of this area should be maintained were possible. Several terraces in this area have been group repaired and demonstrate how properties can be returned to their original condition in terms of external appearance. Additional selective group repair may be appropriate in this area.
• Riverside Mill and river corridor area – this area contains the most significant redevelopment opportunity in Bradley. Any redevelopment in this area should capitalise on the presence of Walverden Water, which flows through the former Riverside Mill site.
• Bradley Hall Road area – despite the fact that this area was one of the last areas within Bradley to be developed for terraced housing, the overall quality of the housing stock is poor. The area has been subject to environment improvements, but the removal of boundary treatments in some streets and the realignment of carriageways have lead to an erosion of the original character of the area. There are a number of redevelopment opportunities within this area, these include the Hour Glass Pub, the former Regency Cinema and Youth and Community Centre site.
• Leeds Road area – the Leeds Road area is dominated by the Throstle Nest Mill. The scale of the mill and the predominantly blank perimeter walls have a negative impact on the environment in this area and create a barrier to movement and connectivity. Also the demolition of Queen Street and Bank Street terraces has created some very untidy areas. This has resulted in a generally poor environment in the housing area to the southwest of the mill between Bankhouse Road and Leeds Road. Tackling the problems brought about by Throstle Nest Mill will be essential in improving the housing market in this area.
• Regent Street area - this area of Bradley comprises two distinct local environments. The area to the north of Crawford Street is well maintained with some alley-gating. The area to the south suffers from a poor quality environment, which needs to be tackled through demolition or group repair of the existing stock.

(Also see Chapter 7: Costs, Deliverability and Implementation).

Cycling is an inexpensive and healthy mode of travel and should be encouraged in Bradley since car ownership is relatively low and travel to work patterns show that the great majority of people in Bradley work within a very short distance from their home. Almost 45% of working residents work less than 2km from their home and over 20% of residents walk to work (ONS, 2001). Also the 2008 Pendle Health Profile ⁽³⁷⁾ shows that the percentage of physically active children is the eighth worst in England. Encouraging cycling amongst Bradley children in particular could go some way towards addressing these health concerns.

In Map 11 (overleaf) existing cycle routes in the Bradley area are shown as a green line, existing pedestrian crossings as yellow squares and main destinations as red triangles.