Burnley Town Centre and Canalside Masterplan by Burnley.co.uk

Town Centre & Canalside Masterplan

BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

Contents

1. Introduction

2. Masterplan Context

3. Spatial Strategy

4. Intervention Areas & Key Projects 15

Foreword “This Town Centre and Canalside Masterplan will guide development in and around Burnley town centre over the next decade. Town centres everywhere are rapidly evolving with changes to retailing, the growth of leisure based uses and town centre living. Burnley Council and our partners are working together to capitalize on these emerging trends. We have already seen significant investment in the town centre and canalside areas, notably a multi-million pound public realm scheme along St James Street, a new Primark store, junction upgrades to improve car and pedestrian access as well as the refurbishment of historic canalside buildings and derelict sites around Sandygate. There is growing confidence from the private sector with investment in retail, leisure and town centre living.

Retail Core

Victorian Core

UCLAn’s growth plans provide a significant opportunity to attract a young people to the town. Their occupation of Victoria Mill will provide a catalyst for further transformation of the canalside.

Eastern Gateway

This plan is ambitious and we acknowledge that it will take time to bring forward complex schemes. We are already working with partners, including UCLAN and private sector developers to bring forward key projects that will transform the town centre and canalside.”

Canalside West

Canalside East

Transport Projects

5. Phasing and Economic Benefits

Cllr. Mark Townsend Leader, Burnley Council

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BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

1. Introduction Burnley Town Centre and Canalside Burnley has undergone a transformation over the last decade, with investment in new schools, new housing, business parks and a new direct train link to Manchester.

Burnley Town Centre plays an important role in the economy serving an immediate population of 110,000 people and a wider catchment area of 270,000 people within a 15 minute drive time.

The borough has witnessed significant job growth of 5.6% since 2009. The Council, in partnership with businesses - The Burnley Bondholders - has worked hard to improve perceptions of Burnley as a place to invest, work and live. The result was Burnley winning the prestigious title of Most Enterprise Place in 2013, awarded by the Department for Business, Innovation, and Skills.

Alongside Blackburn, the town is a sub-regional centre for retail, business, civic, education, and cultural activities in Pennine Lancashire. The Town Centre is home to a number of public and private sector employers and other assets that draw footfall into the town including the St. Peter's health and leisure centre, the borough's main library, and the Burnley Mechanics theatre. Within walking distance of the town centre lie the Burnley College and UCLAN Campus and Burnley Football Club's ground at Turf Moor, both of which contribute to the socio-economic value of the town centre.

The emerging Local Plan sets out a growth strategy for the borough releasing a mix of brownfield and greenfield sites for new housing, employment and mixed use development. A key part of the development strategy for the borough is enhancing the town centre ensuring that it is a vibrant retail, leisure and service centre for a larger part of Pennine Lancashire.

Burnley Town Centre is bounded to the West and South by the Leeds Liverpool Canal. The canalside was once the heart of Burnley's cotton industry and is now being revived through the renovation of its heritage and new developments.

Regeneration of the Weaver’s Triangle

Burnley’s historic town hall

Burnley College Campus

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• Thompson Centre (Policy ref. EMP1/8): Mix of B1a, A2 and A3 uses including buildings of multiple storeys, with A2 and A3 uses limited to ground floor only. 62

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Enhancing and developing Burnley town centre’s role as a sub-regional commercial centre is a key objective of the plan. In line with the requirement of the National Planning Policy Framework to provide for sustainable development, the Local Plan establishes Burnley Town Centre as primary focus for retail, office, leisure, civic, and cultural uses for the Borough. Policy TC1 prioritises the town centre as the principal location for the main town centre uses, and a requirement for 35,000 ft² of additional comparison retail is identified over the plan period.

Shelter

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Planning for Growth

The level of planned housing development in particular has been significantly increased to at least 194 homes / year to 2032, with particular focus on the provision of larger family homes (3-4 beds). In addition to this proposed level of housing growth, the emerging Local Plan provides for a Borough wide employment land requirement of circa 66 hectares.

14 Car Park

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The council’s Local Plan provides a planning framework for development across the Borough up to 2032. The new Local Plan sets out strategic planning policies as well as specific site allocations and detailed development management policies for land across Burnley. It provides for an ambitious level of growth over the period to 2032, signalling a resurgence in the town’s economic prospects, illustrated by its continued employment growth since 2009.

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BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN 121

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

BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

Burnley Town Centre Strategy The Burnley Town Centre Strategy (2016) sets out the Council’s Vision and Objectives for the Town Centre, which underpin the Masterplan. A vision articulated in the Strategy is for Burnley to become “a distinctive and attractive town centre which is inclusive and relevant to people of all ages and backgrounds. It offers a high quality retail, cultural and leisure experience for residents and visitors.”

The Objectives are to: • Re-establish the town as the first choice shopping and service destination for residents in Burnley and the surrounding area; • Develop a vibrant leisure, entertainment and cultural offer in the town; • Strengthen the role of the town centre as a business hub with a strong Civic and Business District; • Create a choice of high quality town centre accommodation including an enhanced offer for the borough’s growing student population; • Enhance the quality of buildings, streets and public realm making the most of the town’s historic buildings and conservation area; and • Provide easy access into and around the town centre with good car parking to suit a variety of uses.

BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

Drivers of Growth UCLan The University of Central Lancashire (UCLan) has ambitious plans that will see it significantly expand student numbers in Burnley from their current levels to at least 2,000 by 2021 and 4,000 by 2025. The growth will involve in the first place optimising the utilisation of the existing Burnley Campus site, which has a capacity for around 1,200 students. Further growth can be accommodated at the former Victoria Mill on Trafalgar Street. The building has been specified to a high standard for largely flexible academic provision and will accommodate the teaching and learning of approximately 1,200 additional students. Should the expansion of student numbers be delivered successfully against projections, it is anticipated that the demand for teaching and learning space would outgrow the combined capacity of the existing Burnley Campus and Victoria Mill in 2022. In planning for this, the University, through its engagement with Burnley Borough Council, has begun the process of considering the best locations for further expansion in the town. There are a number of sites located adjacent or near to Victoria Mill including Council owned land on Sandygate and the former George Street Mill site, which could create a more coherent town centre campus to accommodate UCLan’s longer term growth. The growth of the University’s presence in Burnley will contribute to increased footfall in the town centre, which will drive up demand for retail,

leisure, and cultural uses. There will definitely be requirements for student accommodation and possibly an increased element of business start-up space from students.

Residential There are positive signs pointing to the emergence of a residential market in Burnley Town Centre and Canalside, albeit from a relatively low base. Since 2013, around 400 housing units have been approved within the Town Centre, primarily through the conversion of existing buildings to residential use, but also new build in the Canalside area. The delivery of better quality town centre housing provides opportunities to grow the market, particularly for apartments. There is reasonable interest from first time buyers and older buyers, and good potential for buy to let. The student market represents a particular growth opportunity for Burnley and developers are beginning to acknowledge this. An increase in town centre housing will help to sustain the health and vibrancy of the town centre, enhancing the feel and character of the town, as well as demand for goods and services.

Public Sector Estate The public sector has a considerable presence in the Town Centre and embraces a range of local and national bodies including Lancashire County Council, Lancashire Police, the Ministry of Justice, the National Health Service, Department for Work and Pensions, and Burnley Borough Council.

The public sector contributes to Burnley’s status as a sub-regional centre, bringing in daily visitors and workers, which in turn stimulate demand in the private sector, particularly with regard to professional, legal, and financial services, retail, and leisure. Burnley Borough Council has coordinated a review of public sector property assets across the town as part of the One Public Estate initiative (OPE). Whilst there do not appear to be any major new accommodation requirements in the short term, the rationalisation of the public estate will create new development opportunities. Some public sector organisations may be looking to make changes to their estate over the long term that may create demand for new build accommodation. There is a need to retain some flexibility within the masterplan, should such an opportunity present itself, which could be linked to a modest speculative element.





BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

Retail & Leisure

Burnley Football Club

Burnley Town Centre has a sizeable catchment and modest vacancy rates, with around 69.6% of comparison spend retained locally. The Retail, Leisure and Office Assessment (2013 NLP) indicates capacity for 3,390 m² (net) additional comparison retail floorspace to 2026 and shortages in the town centre offer related to the food and beverage market.

The football club draws in average crowds of around 20,000 fans and plays a key role in the town’s visitor economy. The cachet of a premier league football club, especially for a town of Burnley’s size, is a generator of pride and interest in the town, extending its reach far beyond Lancashire to the rest of the world.

There is good growth potential especially in the leisure retail market. The town centre is felt to be of interest to both local and national brands and a range of gaps exist which could be filled, for (local) convenience, comparison and especially restaurant / other hot food uses. An increase in restaurants, cafes, and bars would support both the local shopping experience and deliver an evening economy. There are opportunities for growth in this area linked to UCLan and the Football Club, as well as the business market and general visitor economy. Indeed, the Curzon Street site provides a strong opportunity to deliver new modern leisure facilities, to meet a range of needs and build the local critical mass.

The club’s stadium, Turf Moor, is located less than 500 metres to the east of the Town Centre on Harry Potts Way. Despite this short distance, there is little association between Turf Moor and the Town Centre. The scope to enhance demand for town centre retail, leisure, and cultural uses and enhance the ‘match day experience’ is as yet not capitalised.



BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

3. Spatial Strategy

Despite the loosening of the town’s once dense urban fabric, there still remain areas where the structure of the town is reasonably intact. The commercial and civic heart of the town has a strong urban form and many mills and weaving sheds survive along the Leeds and Liverpool Canal Corridor. Both of these areas are conservation areas and a number of buildings are listed.

The spatial strategy provides the underlying framework to the masterplan. It is formed by: • Intervention areas – areas of cohesive character that provide a setting for individual masterplan projects.

RETAIL CORE CANALSIDE WEST VICTORIAN CORE

• Public realm framework – the primary network of routes and spaces across the Town Centre and Canalside. • Transport network – the main transport corridors and gateways that ensure good accessibility and connectivity in and around the town centre.

The inherited townscape of today’s Burnley is a product of many centuries of growth and development from the Anglo-Saxon period onward. As the industrial revolution took hold of the region, Burnley experienced rapid urbanisation. Industrial restructuring, and changes in living patterns during the late twentieth century also left their mark on the town centre with large gaps visible where there was once dense development.

EASTERN GATEWAY

CANALSIDE EAST

Intervention Areas

Public realm framework

Transport network



BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

Intervention Areas The intervention areas identified as the Retail Core, Victorian Core, Eastern Gateway, Canalside West and Canalside East provide the setting for a range of projects identified in this masterplan. Areas where there is greatest scope to create new destinations and town centre attractions through one or more masterplan projects are identified as Key Sites. Retail Core The Retail Core is the principal shopping destination for Burnley. It is focused on St. James Street and the Charter Walk Shopping Centre, which includes the town’s market. It also includes Standish Street, a secondary shopping street, popular with independent retailers. As defined by its name, development within this intervention area will be focused on enhancing the town’s retail offer through renovation, environmental works, new openings, and the development of the Curzon Street Key Site. In addition to retail, the trend for ‘live’ retailing to become more experiential is expected to feed the growth of leisure uses. Leisure uses will extend the diversity of the town centre and increase dwell time, as will upper floor uses such as residential should they be viable. Victorian Core The Victorian Core chiefly developed in the nineteenth century as the commercial and civic heart of the town centre. It retains this role in the present day with the area being occupied by professional, legal, and financial services in addition to the town’s main civic uses including the Town Hall, the Mechanics Institute (housing the town’s

main performing arts venue), Lancashire County and Burnley Borough council offices, the Police station and Magistrates’ Court, and the library. The area contains many fine listed buildings and is mostly designated as a conservation area. Given the area’s relative completeness, its physical make-up will not change dramatically and most development will involve the sensitive conversion and renovation of existing buildings to accommodate new uses, particularly residential and leisure. The William Thompson Key Site is an opportunity to bolster Burnley as a civic and commercial hub and is reserved for a new office or civic functions. Eastern Gateway The Eastern Gateway is a mixed use area of retail, leisure, office, and residential uses centred on Yorkshire Street and forms a gateway between the Town Centre and the football club at Turf Moor. It is expected to endure as a mixed use area, with sites identified for refurbishment or redevelopment to bring in new uses such as leisure, retail, and community that activate the town centre and enhance the match day experience. Canalside West The Canalside area, often referred to as the Weaver’s Triangle, is transitioning from an industrial area to a more mixed character of uses. The occupation of Victoria Mill by UCLan is a game changer and it is expected that the growth of UCLan’s presence around the canalside area will lead to further academic buildings and other ancillary development in the area including student

housing, retail, leisure, and workspace around the Sandygate / George Street Mill Key Site. South of the George Street Mill site, the Whittam Street Key Site provides the scope for redevelopment of the Council owned King Street car park together with other adjacent sites in public and private ownerships to deliver a new residential quarter linking the town centre with the canalside. There also remain a cluster of former mill buildings along the canalside that would suit conversion to residential. Canalside East The Healey Royd and Finsley Mill sites were formerly industrial areas and are now largely in a derelict state. Both sites have historic planning consent for residential, are allocated in the new Local Plan for residential uses and together form the Healey Royd / Finsley Mill Intervention Area. The adjacent Finsley Wharf site includes a range of Grade II listed buildings comprising three warehouses, a canal cottage, outbuildings and blacksmith forge, and are also in a poor state of repair, having been unused for several years. The Canal and River’s Trust has secured funding to re-develop the site as a visitor destination including a café, function room, boat mooring facilities and holiday cottages.



BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

Public Realm Framework

East –West axis A strong axis through the heart of the town centre can be traced from Turf Moor on the eastern side of the Town Centre to Upper Sandygate and the Canalside on the west. This axis includes the now upgraded St. James’s Street and Upper Sandygate. Additional works on Lower Sandygate, St James Street West and Yorkshire Street to enhance pedestrian priority and public realm would create a mile long promenade, connecting the new UCLan campus, the Retail Core, and football club. North – South axis There is scope to form a new pedestrian priority axis from the College Campus in the north to Manchester Road station in the south. The axis includes Canning Street, Curzon Street, and Hammerton Street, where most of the public realm has already been improved, and would include works to enhance connections across Active Way and Queen’s Lancashire Way, public realm improvements in conjunction with the development

of the Curzon Street and King Street sites, and a new canal bridge and pedestrian link on to Trafalgar Street. The resulting axis would link the College Campus, Burnley Central Station, and Manchester Road station with the Retail Core at its heart.

NORTH-SOUTH AXIS

Victorian Core This area of many characterful buildings and a distinctive grid pattern of streets could be much improved through changes to the public realm to create a more pleasant pedestrian setting. Presently the share of street space tips more in favour of vehicles, which is not inducive to leisure and residential uses. As part of wider aspirations to reclaim more space for pedestrians, Hargreaves Street, Grimshaw Street, Manchester Road, and Parker Lane are identified as key opportunities. Canalside The canal tow path is an important off road walking and cycle route, which links the Town Centre with parks, important green spaces, and the wider urban area. In order to maximise this asset, the development of sites along the canal will contribute towards new and enhanced connections to the Canalside, specifically to Trafalgar Street and Finsley Gate.

EAST-WEST AXIS

The council has public realm Supplementary Planning Documents (SPD’s) in place for the Town Centre and Weaver’s Triangle (Canalside) respectively and has implemented major public realm schemes in both areas with recent works including the upgrade of St. James’s Street, Curzon Street, and Trafalgar Street, and the creation of Sandygate Square. The public realm framework associated with the spatial strategy aims to join up these investments with areas of opportunity to create a cohesive, high quality network of spaces.

Public realm framework

BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

Transport network

The movement strategy is focused on retaining good accessibility by the private vehicle and improving car park provision, but also enhancing the pedestrian and cycling experience. Measures to enhance public transport and connectivity between public transport gateways are also identified. Car parking The car parking strategy involves the redevelopment of existing surface car parks with replacement capacity directed to a number of new multi-storey and decked car parks with direct access from the Ring Road. Pedestrian movement The Ring Road now accommodates most of the traffic carrying function in the town centre. There is an opportunity to enhance the convenience of walking and improve the public realm accordingly by minimising highway infrastructure within the Ring Road and addressing issues of severance across the Ring Road.

Public transport The town centre is served by three train stations (Manchester Road, Burnley Central, and Burnley Barracks). Manchester Road is the main station and has recently undergone infrastructure and service improvements. Plans to further enhance rail accessibility as part of the new Northern Rail Franchise, as well as longer term opportunities to reinstate services between Colne and Skipton, point towards the need to ensure the stations are well integrated into the town centre. The role of the bus to enhance linkages to the rail stations, as well as its role as a transport mode more generally is also important.

BURNLEY CENTRAL BURNLEY BARRACKS

MANCHESTER ROAD

Transport network

P MANCHESTER ROAD

CENTENARY WAY



BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

4. Intervention Areas & Key Projects The masterplan to the right incorporates the principles of the spatial strategy to identify the key moves that will shape the development of the Town Centre over the next ten years. This is not to say that development will not and should not happen elsewhere during that period, but the council and key partners will focus attention on these projects as they have the greatest potential to drive forward sustainable development, based on the Town Centre’s main assets and opportunities. Within each intervention area, a number of masterplan projects have been identified. More detailed design, planning, and development guidance is provided for the Key Sites.



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BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

Retail Core Intervention Area Context The Retail Core is focused on St. James Street and the Charter Walk Shopping Centre, which includes the town’s market. This is complemented by Standish Street with its cluster of independent retailers. A key development opportunity is the proposed Curzon Street site, which is currently a surface car park and is proposed for a new leisure / retail development. As a new anchor to the north of the Retail Core this development could help to drive up footfall and diversify the town’s offer. Most other opportunities relate to continued renovation and reuse of property, which will also help to enhance the quality of the town centre. Masterplan Projects RC1 Pioneer Place The Curzon Street development site is identified for a new leisure scheme, which will be anchored by a cinema, and will include new food and beverage and retail units. The scheme will include its own public realm setting. Public realm works to Curzon Street, Parker Street, and Bankfield are also required to integrate the development into the wider Retail Core (see RC5). RC2 Charterwalk Shopping Centre The demolition of the redundant cinema and open market above the Charter Walk Shopping Centre, including the servicing ramp and pedestrian bridge on Bankfield, aims to enhance the setting of the Curzon Street development site and Retail Quarter more generally. The continued refurbishment of Charterwalk Shopping Centre will provide larger

retail units and improved shopping environment. The next phase identified will comprise enhancements to the retail units facing Market Square in the form of new frontages and the relocation of the market hall access stair. Upgrading the external frontages and existing public realm would significantly enhance this area of the Town Centre. It is recommended that consideration should be given to removing the pavilion building from the centre of Market Square to improve sight lines to retail frontages, enhance pedestrian permeability to Bankfield and create a space for events and outdoor markets. The refurbishment of Calder House would make a significant contribution to the Town Centre office market. RC3 St. James’s Street / St. James’s Street West Occupancy of the traditional retail building stock on St. James’s Street to be buoyed by the enhanced public realm setting and increased footfall generated through the development programme. Refurbishment works to external frontages and shop fronts are to be encouraged, provided they are sensitive to the character of the Town Centre conservation area. Conversion of unused upper floorspace for residential supported. RC4 Standish Street Sensitive investment in properties to be encouraged in order to boost occupancy and improve the retail environment. Scope for streetscape and public realm improvements to create a more distinctive environment and a setting for independent retail.

Potential to convert surface car park into a public space or develop for a mix of uses. RC5 Curzon Street / Bankfield Public Realm In order to incorporate the Curzon Street site into the wider Retail Core there is a need to create a stronger pedestrian linkage between the pedestrianised section of Curzon Street and the main pedestrian entrance to the development. An ideal solution would be to extend the area of pedestrianisation to Parker Street, which by its nature would also mean pedestrianisation of Bankfield between Standish Street and Curzon Street. Since Standish Street is one-way, mitigation will be required to retain access and servicing to this area, as well as on-street parking on Standish Street. A potential solution is to reverse traffic on Standish Street to access the area and extend the rear service road (Yarm Place) to Bankfield in order to permit egress.

St. James’s Street coffee culture

St. James’s Street new public realm

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BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

Key

RC5

New development Refurbishment

KINGS WAY

RC4

Soft landscaping

EET

H STR

REET

ON ST

IS STAND

CURZ

RC1

New/enhanced public realm

BAN

KFI

Proposed next phase of Charterwalk refurbishment

ELD

New business opportunities St. James’s Street

ER TO

RC3 ST. JAMES’S ST

RC2

ST. JAMES’S ST

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BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

Key Project: Pioneer Place The Curzon Street site is located on the northern edge of the Retail Core and extends to 1.5 hectares. The site is in the ownership of Burnley Borough Council and is identified in the Local Plan for retail and other appropriate town centre uses. Use The site addresses Active Way and presents an opportunity for a major leisure-led development ideally bringing a cinema and / or other family orientated leisure facilities and restaurant chains into the Town Centre. The emerging Local Plan identifies the site as suitable for a mix of retail, office and leisure uses comprising or including A1(shops) uses together with other A2 (Financial and professional services), A3 (Restaurants & Cafes), A4 (Drinking Establishments), B1a (Offices), C1 (Hotels) or D2 (Assembly and Leisure) uses. C3 (Housing) and A5 (Hot food takeaway) uses would only be acceptable as an ancillary part of a mixed use scheme. A minimum of 1,500 m2 (net) of A1 comparison floorspace should be included within the mix of uses but any new retail provision must not displace occupiers from the current Town Centre. Visualisation of Curzon Street and Bankfield, showing proposed retail / leisure development and enhanced public realm

BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

ACTIVE

Design and quality The site is prominently located on Active Way and development proposals will be expected to reinforce the site’s role as a gateway to the Town Centre. An opportunity exists to create a new townscape and a positive and appropriate relationship with surrounding buildings and spaces.

WAY

OUSE

BANKH

REET

ON ST

CURZ

A substantial building of high quality is envisaged to the north west corner of the site (a minimum of three storeys) addressing Active Way, and specific attention should also be given to frontages on Active Way and Curzon Street to ensure an attractive contribution to townscape character. The scope for a small pavilion building east of Curzon Street should also be explored to aid navigation towards Henry Court Millennium Project, Fareham the development from the existing retail area.

Materials should harmonise with the character of the town centre, including high quality locally distinctive materials and contemporary materials that are complementary.

Primark

BAN

KFI

ELD

M&S

Pavilion on the square, Bury

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BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

Landscape and public realm A new public square should form the centrepiece to the development. This will primarily be a hard urban space, but there is also scope to incorporate soft landscape, street furniture, and public art to raise the overall setting and quality of the development. The public square should connect into the wider street network with permeable pedestrian routes through the site between Curzon Street and Royle Road. Connectivity with the Primary Shopping Area should also be enhanced through the provision of high quality public realm on Curzon Street itself, which should blend into the design and palette of the recently completed works further south on Curzon Street. The removal of the service access ramps to the open market on Bankfield, creates a particular opportunity to form a new public space around the River Brun in this location, which will enhance the setting of the development and connections to the primary retail area. The River Brun crosses the site both as an open watercourse and in culvert. Proposals therefore will need to take account of the easement requirements of the Environment Agency to provide unobstructed access to the open water course for inspection and maintenance. Scheme proposals should also incorporate the River Brun as a feature. To reduce flood risk, improve the quality of the River Brun and enhance the amenity value it brings to the town centre public realm, the opening up of the culverted section of the river within the site should be

explored, taking account of the Council’s Strategic Flood Risk Assessment. Movement and parking Loss of town centre car parking will need to be mitigated. Development proposals should provide the minimum car parking required for the development with access from Royle Street. It is expected that in the short to medium term a surface car park will be sufficient, however, over the longer term there may be a requirement to provide a multistorey car park in the vicinity. Servicing of units will be provided from a dedicated service yard behind the new Primark store and an on street service area on Bankhouse Street.

The Rock Triangle, Bury

In order to enhance pedestrian connectivity with the Primary Shopping Area, the design of Curzon Street needs to be realigned in favour of pedestrians, as it is presently dominated by the road carriageway, which results in a narrow pavement connection to the site. This may require some redirection of traffic in this part of the Town Centre to remove or reduce traffic accessing Curzon Street from Bankfield, so that a stronger pedestrian link can be made.

Newbury Town Centre

BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

Implementation and Phasing Programme Leader: Burnley Council Programme Partners: Maple Grove Developments Ltd, Addington Capital, Private sector occupiers, Operational Partner for MSCP (if required) Funding: Private and Public Finance Phasing: 1. RC2 Charterwalk Shopping Centre 2. RC1 Pioneer Place development 3. RC3-5 Public Realm improvement, subject to securing funding 4. RC3-4 Refurbishment of external frontages and shop fronts on St James’ Street/Standish Street, subject to securing funding 5. MSCP Car Park (subject to demand) Change in the Retail Core will begin at the Charterwalk Shopping Centre with the demolition of the former cinema block and open market and re-configuration of retail units around Market Square to create new shop frontages and market access. These are committed projects for the Council and Addington Capital, expected to commence in early 2019. Maple Grove has now been appointed as developer partner for Curzon Street, which is expected to include a multi-screen cinema, restaurants, public plaza, shops and a 125 space car park. Projects RC3-5 complement this large scale investment with improved public realm on nearby streets. This work will be Council led, but subject to securing funds. Phase 4 seeks to deliver improvements to frontages on key retail streets. Again, this will be subject to

financing and whether business contributions can be secured. Where upper floor conversions and other changes are proposed by businesses and owners, complimentary investment in ground floor frontages should be encouraged. The Masterplan identifies a potential future requirement for a larger multi-storey car park with approximately 358 spaces in the vicinity. Delivery of such a car park here, and/or on Centenary Way would be subject to a detailed analysis of Town Centre car parking needs, in the light of projected growth. If judged necessary, financing and delivery methods would need to be identified which could include direct Council delivery/operation or partnership with a facilities developer/operator such as NCP.

ECONOMIC BENEFITS

353 NEW JOBS*

15,915 m² FLOORSPACE* (GIA)

Retail: 134

Retail: 2,505 m²

Leisure: 219

Leisure: 4,110 m² MSCP: 9,300 m² (358 spaces)

£11.38 million GVA* (£/year from jobs)

£1,356,075 RENTAL RETURN* / YEAR

Retail: £5.19 million

Retail: £513,525

Leisure: £6.20 million

Leisure: £842,550 Revenue (MSCP): £379,731

£633,717 BUSINESS RATES* / YEAR Retail: £ 239,979 Leisure: £393,738

*From RC1 Pioneer Place new development.

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BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

Victorian Core Intervention Area Context The area is relatively complete so opportunities for enhancement will lie in further renovation, re-use and improvements to historic properties including more intensive use of upper floors either for residential or upgraded office accommodation and ground floors for retail and leisure uses with enhanced shop fronts and signage. There is scope for new high quality development around Place de Vitry (William Thompson Site). Masterplan Projects VC1 William Thompson development site There is potential for the development of the existing surface car park for a new commercial or civic use, which could include new Grade A office accommodation and / or a new civil justice centre replacing the current Combined and Magistrates Courts. Any development to this site must complement the surrounding Conservation Area and include enhancements to the Place de Vitry. VC2 Burnley Mechanics The proposed refurbishment of the theatre will enhance the condition of the building and its cultural offer. The project includes a new roof and the opening up of unused space to reintroduce training and education space.

VC3 Renovations & changes of use Proposals to renovate under-used property within the Victorian Core, including proposals to replace and renew shop fronts and signage will be supported, provided the proposals preserve and enhance the character of the area and the streetscene. Particular properties identified include the former Post Office on Hargreaves Street, former Burnley Council offices on Nicholas Street and Parker Lane, the former Technical School on Elizabeth Street, and commercial properties more generally on Manchester Road and Hammerton Street.

for potential live production and special effects. The Stage 2 report considered the feasibility of developing a model to support these activities and the longer term incremental restoration of the theatre. Viable and sustainable proposals to restore and re-use the theatre would be welcome. However there are significant challenges to achieving a positive outcome for the building, given the multiple ownerships, costs, funding availability and the degree of dilapidation. Therefore, other options, including demolition and re-development may also need to be considered.

whilst still permitting the needed vehicle access for servicing, parking, and other valid access needs. Works to reclaim space for pedestrians and create a more pleasant public realm to create spill out space for local cafes / restaurants, the creation of a raised table junction with Hargreaves / Grimshaw Street, and a shared surface public space in front of the Town Hall and Burnley Mechanics, through which traffic would pass. Given the status of this street and its conservation area setting, public realm materials should be of the highest quality.

Refurbishment works to external frontages and VC4 Empire Theatre Any alternative development proposal will be shop fronts along Manchester Road are to The Empire Theatre is a Grade II listed Victorian considered on its merits, balancing the requirements be encouraged, so long as the proposals are theatre, it has been vacant for over 20 years, has of both the Environment Agency and Historic sensitive to the Conservation Area. Good quality fallen into a state of advanced dereliction and is England. The site’s central urban location would improvements to shop fronts and businesses within identified on the Theatres’ Trust Risk Register. The make it suitable for a number of Town Centre uses. this area, by restoring them to their original design, building is in multiple ownerships including the The site area available for development would would further enhance and promote the Victorian 2 Duchy of Lancaster. The original entrance to the be approximately 640 m , which over 4 floors Core. 2 Theatre is via No. 119 St James Street, which would yield 2,560 m of floorspace. Compatible currently operates as A3 use. No proposals to uses would include office, retail, and leisure. Any A major occupier within VC5, on Manchester Road, restore the main building have been received from replacement building or development would need to is Lancashire County Council at Chaddesley House, the building’s owners. be of high quality. a 1960s office building with a small surface car park to the rear. This site occupies a premier location The Burnley Empire Theatre Trust together with other VC5 Manchester Road opposite the Grade II* listed Burnley Mechanics stakeholders have carried out a viability study. The Manchester Road is one of the grandest streets Theatre and Grade II listed Town Hall. It is currently first stage of a viability study concluded that there is in the Town Centre, providing the link between the fully occupied by the County Council and there are insufficient demand to support the operation of the main railway station and the Retail Core and the no known plans to vacate the building, however, Empire as a theatre, but identified various strands of setting to the Town Hall and Mechanics Institute. a longer term strategy to refurbish the site could activity for the venue, including it becoming a music The width of the carriageway is generous in relation be considered. Any future plans for this site must / nightclub venue, project space for independent to vehicle flows and it is therefore feasible that take account of the constraints posed by the River artists, rehearsal space, and a training stream road space could be reallocated to pedestrians, Calder which runs under Chaddesley House and

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BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

through the site, whilst also complementing the surrounding Conservation Area.

New development

ST. JAMES’S ST WEST

Refurbishment New/enhanced public realm

VC3

VC4 VC6

Soft landscaping

VC5

ES’S S

M ST. JA

VC3

AN C

HE S

RO A

VC2

LIO

VC1

VC3

TO ER

M N T EE

R ST

VC3

NA RY WA Y

NT E

AV E

M HA

VC7 St. James’s Street West Public Realm Public realm interventions to St James’ Street West should include works to widen footways, upgrade paving materials, and introduce new street tree planting. This will extend the high quality environment completed on St. James’s Street, providing an enhanced setting for independent traders and improved pedestrian links to the Canalside.

VC7

VC6 Hargreaves Street & Grimshaw Street Public Realm Hargreaves and Grimshaw Street form a strong linear corridor to the Place de Vitry and a setting for a mix of uses. In a similar manner to Manchester Road there is scope to reclaim space currently used as road carriageway for pedestrians and to upgrade the quality of the public realm to a quality fitting its conservation area status. This could also include a raised table / shared surface along the Parker Lane frontage to the Place de Vitry to better integrate this square into the wider pedestrian network.

Key

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BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

Key Project: Place de Vitry The site of the former William Thompson leisure centre extends to 0.6 hectares and is wholly owned by Burnley Borough Council. It is regularly shaped, generally level and located at the corner of Centenary Way and Red Lion Street. Currently used as a surface car park, it is identified for a new office / civic use. Use The site addresses the Place de Vitry and is an opportunity to develop a very prominent site with prestigious landmark offices in the Victorian Core. The emerging Local Plan identifies the site as primarily suitable for office development (use classes B1 and A2), with ancillary leisure (use class A3 Restaurants & Cafes). The site is capable of accommodating a number of development options, ranging from one large Grade A office building to a series of office buildings, potentially with ancillary leisure uses on the ground floor to address the Place de Vitry. There is also potential for the site to accommodate a new law courts complex as replacement for the existing Magistrates Court and Combined Court should such a need emerge.

Visualisation of William Thompson site, showing proposed office development and expansion of the Place de Vitry

BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

LIO

CE NT

EN AR Y

W AY

Design and quality The site fronts the Place de Vitry, a significant open space flanked by the Police Station and Magistrates Court and Burnley Library which is grade II listed. The site is also prominently viewed from within the Town Centre Conservation Area, where it terminates the view corridor formed by Hargreaves Street and Grimshaw Street. Development proposals will therefore be expected to enhance the setting of the Police and Magistrates Court and library, the Place de Vitry square, and the Town Centre Conservation Area. Particular attention should be focused on the scale and layout of the development and its impact on the enclosure and animation of the square. An attractive frontage should address the square and it is suggested a building of around three storeys will provide the right balance between creating some prominence without negatively impacting on surrounding buildings. The development should also positively address Centenary Way to the rear of the site.

The Hub, Manchester Science Park

The palette of materials should include high quality locally distinctive materials. High quality suitable and complementary contemporary materials and designs may also be acceptable.

B&Q headquarters, Eastleigh Option 1 - Office development

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BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

Landscape and public realm Development proposals should contribute to the enhancement of the Place de Vitry gardens, focusing on the threshold between the western frontage of the development and the gardens. This should primarily be treated as a public space with car parking removed, but vehicular access retained if necessary as a ‘shared surface’ treatment. High quality paving materials should complement the setting of the development and the existing public realm, tying into the existing palette of materials.

LIO

W AY

Movement and parking Loss of town centre car parking will need to be mitigated and it is proposed that a new multi-storey car park is provided on the site of the existing surface car park on Centenary Way. A small proportion of surface car parking may be retained should it not negatively impact on the quality of the public realm. Servicing access can be retained via existing routes from Red Lion Street and Parker Lane.

EN AR Y

Bristol Courts Option 2 - Civil justice centre development

Birchwood Park

CE NT

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BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

Implementation and Phasing Programme Leader: Burnley Council (Others) Programme Partners: Burnley Leisure Trust, Private sector developers, private sector occupiers, public sector service providers as per their premises needs, Burnley Empire Theatre Trust. Funding: Private and Public Finance Phasing: 1. VC3 & 5 Renovations and changes of use, frontage improvements 2. VC2 Mechanics Institute Theatre, subject to securing funding 3. VC5-7 Public Realm Schemes, subject to securing funding 4. VC1 William Thompson development site 5. VC4 Empire Theatre, subject to an agreed delivery approach, partnership and finance

Across the Victorian Core, and the wider Town Centre, private developers/house builders are already progressing conversions of surplus commercial buildings on their own initiative, with limited public support. It is assumed this will continue and accelerate over masterplan period, building a critical mass of housing and other uses. Public sector partners should support this by marketing surplus properties to developers before they are fully vacated to ensure rapid re-use and limited void periods. Complementary improvements to retail frontages should be encouraged alongside these changes.

A significant project will be the refurbishment of the Mechanics Institute. Project planning is at an advanced stage here, under the leadership of Burnley Council with Burnley Leisure Trust, but subject to a successful bid for Heritage Lottery Fund monies. As with the Retail Core, there are later phase projects which complement major investment with improved public realm on nearby streets. This work will be Council led, but subject to securing funds. The William Thompson site represents a key development opportunity site for Burnley, with delivery via land disposal or joint venture with a development partner, accounting for ongoing reviews of public sector accommodation needs. The Empire Theatre represents a long term opportunity for leisure and cultural facilities but, as noted, there are significant challenges to overcome in achieving this. Strong project leadership will be required, likely in the form of a Charitable Incorporated Organisation, which can take the time to raise the extensive funds required. Ultimately a decision will need to be made as to whether this property can be viably reused, in any form.

ECONOMIC BENEFITS

8,118-9,000 m² FLOORSPACE* (GIA)

542-600 NEW JOBS*

£34.44 -78.21 million GVA /year from jobs* £1,306,998-1,548,000 RENTAL RETURN* / YEAR £311,082- £344,880 BUSINESS RATES* / YEAR *Reflect William Thompson development options, for private or public-sector occupation.

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BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

Eastern Gateway Intervention Area Context The Eastern Gateway is an important part of the town centre as a gateway by bus or road, and the link to one of the town’s key assets (Turf Moor). There is scope to vastly enhance pedestrian and cycling connections between St. James’s Street and Turf Moor and provide a more attractive and generous public realm. Targeted redevelopment on Yorkshire Street and Croft Street is also an opportunity to lift this part of town. Masterplan Projects EG1 Yorkshire Street properties The stretch of Yorkshire Street between the canal aqueduct and Turf Moor is fronted by a range of historic buildings, some of which are listed, that are generally in poor condition. The sensitive enhancement of properties through better quality shop fronts, signage, and exterior works is encouraged, along with selective redevelopment and infilling. EG2 Croft Street properties There are a number of commercial premises fronting on Croft Street that are either in a poor state of repair or vacant. The redevelopment of part of this area is identified as the preferred location for a proposed Youth Zone led by Burnley Football in the Community and Burnley Leisure to provide a high quality accessible services and activities for young people in the heart of the town centre close to public transport connections. Improvement works to the remaining retail blocks either through refurbishment or redevelopment and intensification of these sites is encouraged.

EG3 Red Lion Street development site A large area of grass adjacent to the bus station sits incongruously in what should be an urban setting. The site offers a ready development site, which could be suited to a variety of uses from a single storey pavilion retail unit to a multi-level mixed use format block. EG4 Yorkshire Street Public Realm Enhancement of the public realm to the east of St. James’s Street is proposed to improve pedestrian connections to Turf Moor and the match day experience. The large roundabout junction arrangement at the Church St / Centenary Way / Yorkshire Road junction is very unhelpful to pedestrian movement across all junction approaches and the pedestrian subway is uninviting. It is proposed that the junction is simplified from the current roundabout arrangement to a 4 way signalled junction with pedestrian crossing points. This would allow the filling of the subway, which is in a poor state of repair and Visualisation of how Yorkshire Street could be revitalised with enhanced public realm unattractive, and increased pedestrian permeability across the ring road along this key desire line. By redesigning the junction, additional space can be given over to pedestrians, which would tie into more direct crossing points. Complementary public realm works on Yorkshire Street should include new high quality surfacing, enhanced footpaths and cycleways, and soft landscaping. There is also great potential to formalise the processional route to Turf Moor with lighting columns, signage / flags, and tree planting, which would add to the sense of occasion on match days.

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BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

Key New development Refurbishment New/enhanced public realm

I KE

AL W

EG4

Soft landscaping

YORKS

HIRE ST

Yorkshire Street

EG1

LIO

EG3

Red Lion Street

CE NT E

NA RY WA Y

CR OF

EG2

REET

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BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

Implementation and Phasing Programme Leader: Burnley Council, Burnley Footballin the Community Programme Partners: LCC, occupiers, Football Foundation/Burnley Football Club, Burnley Leisure Trust, other private sponsors. Funding:Football Foundation/Burnley Football Club, public and private finance. Phasing: 1. EG1 and 4 Yorkshire Street Public Realm and junction improvements, infill and junction improvements, subject to securing funding 2. EG3 Red Lion Street, subject to demand and viability 3. EG2 Croft Street Properties, development of a Youth Zone Redevelopment of the Croft Street site for a Youth Zone will be a later phase project. Delivery challenges will include acquisition of the Croft Street block. The project will be led by Burnley FC in the Community working with Burnley Leisure Trust. Potential funding sources include Football Association Premier League Funding and the Football Foundation. Further funding sources, used for Youth Zones elsewhere, have included direct public sector contributions, lottery funding, corporate sponsorship and shared services.

There are opportunities for investment in gateway public realm and commercial frontages. This work will be Council led, but subject to securing funds and potentially occupier contributions. Any redevelopments will be private sector led, reflecting growing demand for facilities to support the Football Club. Red Lion Street represents a long term development option which, subject to viability and demand testing, could be marketed for disposal or joint venture development for a commercial scheme.

ECONOMIC BENEFITS

86 NEW JOBS

12,783 m² FLOORSPACE (GIA)

Retail / Leisure: 22

Retail / Leisure: 401 m²

Office: 54

Office: 802 m²

Youth Zone: 10

Youth Zone : 3,562 m² MSCP: 8,640 m² (332 spaces)

£8.64 million GVA (£/year from jobs)

£211,327 RENTAL RETURN / YEAR Retail: £82,205 Office: £129,122

Retail / Leisure: £851,400 Office: £7.79 million

Revenue (MSCP, £/year): £352,152 Revenue (Youth Zone Notional, £/year): £350,000

£69,149 BUSINESS RATES / YEAR Retail / Leisure: £38,416 Office: £30,733

BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

Canalside West Intervention Area Context The canalside area around Sandygate is witnessing a renaissance with a much improved setting and historic listed buildings renovated for new uses. There still remain many sites in need of development, however, and with UCLan’s occupation of Victoria Mill, it is hoped that the area’s regeneration will be given new momentum. Key sites around Sandygate Square, George Street Mill and Whittam Street, for example, offer room for UCLan to grow and added scope for other ancillary and compatible land uses that will bolster the development of a new mixed use quarter. Masterplan Projects CW1 Victoria Mill and Sandygate Square UCLan have taken ownership of Victoria Mill to accommodate their expansion in Burnley. It is expected that additional phased growth of the university campus will originate around the Victoria Mill and Sandygate Square with a range of council owned sites being renovated or developed around the square to complement both the historic setting of the area and the character of the university campus. CW2 George Street Mill development site The former George Street Mill site, along with Council owned property south of Sandygate are identified as a complementary area to the activity of the UCLan campus, including a mix of uses such as residential, commercial, leisure and potential expansion space for UCLan. The development should include a series of high quality buildings that

complement heritage assets and the setting of the canal, and possibly include a refurbished Newtown Mill as well as new public realm linkages between Sandygate Square and Charlotte Street. CW3 Whittam Street development site The King Street Car Park, Meadow Mill, and the existing Meadowbank Centre, and potentially the Combined Court, form a significant development site for residential development. The development should respect the existing street pattern and form strong connections to Hammerton Street, Charlotte Street, and Trafalgar Street (through the provision of a new pedestrian bridge over the canal). CW4 Trafalgar Street mills There are a number vacant and under-utilised former mills and weaving sheds along the southern section of Trafalgar Street. Sensitive refurbishment of these nationally and locally listed buildings is encouraged. Proximity to the university campus and Manchester Road station would suggest that a mix of residential and commercial uses are most suitable. CW5 Lower Sandygate public realm Complementary hard and soft landscape works to the lower end of Sandygate between Sandygate Square and Queen’s Lancashire Way will complete the western end of the east-west pedestrian axis. There is scope to provide a shared surface on the Sandygate side of the Queen’s Lancashire Way junction and reclaim the remnant road section of Sandygate as a new open space.

CW6 Hammerton Square The central transition point between the canalside and town centre is currently severed by Queen’s Lancashire Way. In order to provide enhanced pedestrian and cycling connections to the Whittam Street and George Street Mill sites and Manchester Road Station (which forms the north-south axis through the town), it is proposed to re-engineer this junction as a public square, through which the road will pass. Essentially this will make traffic subservient to pedestrians through this space with roads realigned and the carriageway raised to footway level at this location, forming a raised table and a direct, generous pedestrian and cycle route between Hammerton Street and Whittam Street.

Sandygate Square.

CW7 Whittam Street public realm It is proposed that Whittam Street is integrated into the town’s north / south pedestrian axis, incorporating a new canal bridge and enhanced pedestrian and cycle links. Associated works will include the bridge itself and enhanced pedestrian links to the bridge from Trafalgar Road and Whittam Street. As part of the development of the Whittam Street site, it is proposed that the street itself is redesigned as a pedestrian priority space with high quality hard and soft landscaping.

Trafalgar Street

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BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

Key TE YGA

CW5

New development

SAN

CW1

Refurbishment New/enhanced public realm Soft landscaping

CW2 HA

ER TO

King Street Car Park

AF AL

CW6

CW4 BU

Lower Sandygate

GA TE

CW3 CW7

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BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

Key Project: Sandygate Square / George Street Mill The George Street Mill site occupies an area of largely derelict land between the Town Centre and Sandygate Square. The site includes approximately 0.93 hectares of land in private ownership and further parcels of council owned land on Sandygate. As part of UCLan’s plans for Victoria Mill, there is considerable scope for a high quality development that complements the activities of UCLan and the setting of the canal. Use The site is allocated in the Local Plan for a mix of business (B1), residential (C2 and C3), and assembly / leisure (D1) uses. Given proximity to Victoria Mill there is much scope to extend the university campus and create a mixed use student village. This could include education / academic buildings for UCLAN, student accommodation, and leisure uses, such as the proposed Locus arena and convention centre proposal, which has been considered in the past in this location and would complement the development of the UCLan campus and the overall student experience.

Visualisation of Sandygate Square showing new student housing and academic buildings

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BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

Newtown Mill

Former Mill Queen Street (now bicycle shop)

Sandygate Square

New canalside Bridgewalk apartments

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BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

Design and quality A comprehensive approach is required to fully integrate the various landholdings and achieve a good sense of place. The approach should focus on what is best in terms of layout and setting, rather than working around current ownership boundaries, with the exception of Newtown Mill, Charlotte Mill, and the former mill on Queens Street (now a bicycle shop), which should be incorporated sensitively into the development. The layout and scale of the development should be urban in its density, form, and character, focused around a permeable network of streets and a walkable environment. New streets and spaces should integrate well into the wider street pattern, including a clear pedestrian spine through the site linking Sandygate with Whittam Street and pedestrian connections to the Leeds and Liverpool Canal towpath. New buildings should form continuous street frontages that positively enclose and delineate the public and private realm. Good animation of the streets should be achieved through the positioning of building entrances, windows, and active ground uses such as retail where appropriate (e.g. Sandygate Square). Consideration should also be given to framing views into and out of the development, including those from Sandygate Square and along the towpath. The scale of new buildings should be varied to meet the characteristics of the site and opportunities

to reinforce the character and legibility of the development, with a limit of four storeys overall. The palette of materials should reference high quality locally distinctive materials. High quality suitable and complementary contemporary materials and designs may also be acceptable. Landscape and public realm Focused around the pedestrian experience, the development should provide a series of high quality streets and spaces. These should be proportionate to the scale and character of the development, as well as the activities around them. Areas of hard surfacing should be attractive, but also robust. There is particular scope to incorporate a good amount of green infrastructure to soften the environment and complement this canalside setting. Well-designed street furniture and public art should also be considered to raise the overall setting and quality of the development. Movement and parking There will be a need to ensure adequate vehicular servicing and access to the development, but vehicular access should not dominate the design and layout of streets, which should be focused around good pedestrian and cycling connectivity. The amount of car parking should be minimal, given good public transport access and access to car parking elsewhere. The university has a requirement for parking, which will need to be suitably located within a safe and secure walking distance.

Heslington East Campus - University of York

Goodricke College - University of York

Newport city centre campus - University of Wales

University of Roehampton

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BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

Key Project: Whittam Street This site sits adjacent to the Town Centre and occupies the central Canalside area. Current uses include a surface car park owned by Burnley Borough Council, the Combined Court, and Meadow Bank, a former youth centre now used as Lancashire Council offices. The site is identified as a location for regeneration given that many existing uses are aged and may relocate over the long term. There is scope to intensify activities and complement the regeneration of the Town Centre and the growth of the UCLan campus. There is also a need to build on the regeneration of the Town Centre and Sandygate Square by creating improved linkages between the Town Centre, Sandygate Square / George Street Mill, and Trafalgar Street. Use The site would suit a mix of uses, but is considered best as a new residential neighbourhood (C3), which may also include a proportion of student accommodation (C2). Private housing is likely to comprise both apartments and town houses. Other suitable uses may include education (D1) and assembly / leisure (D2), including new academic buildings associated with UCLan and an alternative location for the potential Locus arena and convention centre. Design and quality The layout and scale of the development should be urban in its density, form, and character, focused around a permeable network of streets and a walkable environment. The basic layout of streets

provides the basis for a phased development of the site and Whittam Street should form a strong pedestrian spine through the site linking the proposed Hammerton Square with the canal towpath and potentially a new pedestrian bridge over the canal to enhance pedestrian linkages to Manchester Road station. Strong pedestrian and cycing links should also be formed with the George Street Mill site through to Sandygate. New buildings should form continuous street frontages that positively enclose and delineate the public and private realm. A particular design opportunity in this regard is Hammerton Square and the development should positively address this space to balanced sense of place with the historic Town Centre. Good animation of streets should be achieved through the positioning of building entrances and windows. The scale of new buildings should be varied to meet the characteristics of the site and opportunities to reinforce the character and legibility of the development, with a limit of four storeys overall. The palette of materials should reference high quality locally distinctive materials. High quality suitable and complementary contemporary materials and designs may also be acceptable. Landscape and public realm A key feature of the Whittam Street site is Whittam Street itself, which should be incorporated into any development as an attractive, broad, and direct pedestrian route between the canal and the

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BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

proposed Hammerton Square. The design of the public realm should be high quality, blending into Hammerton Square itself, which should form a high quality gateway between the Town Centre and canalside. Areas of hard surfacing should be attractive, but also robust. There is scope to incorporate a good amount of green infrastructure to soften the environment and complement the setting of the canal. Well-designed street furniture and public art should also be considered to raise the overall setting and quality of the development. Movement and parking Access for servicing and parking should be provided from Mount Pleasant and Charlotte Street in order to maintain Whittam Street as a pedestrian space.

Newbury Town Centre

The loss of town centre car parking through the development of the King Street car park will need to be mitigated. Development proposals should provide the minimum car parking required for the development.

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BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

Implementation and Phasing Programme Leader: Burnley Council/Barnfield Joint Venture Programme Partners: UCLan, Student Housing Operators, other joint venture developer partners, landowners, Calico Homes, Homes England, LCC, Ministry of Justice Funding: Private Finance, Homes England Phasing: 1. CW1 Victoria Mill occupation by UCLan. Consideration of UCLan Car Parking Provision. 2. CW1 Development of Student Accommodation. 3. CW1 UCLan expansion along Sandygate 4. CW3 Whittam Street Housing/mixed use 5. CW4 Private sector led redevelopment of Trafalgar Street Mills 6. CW2 UCLan Campus Expansion, George Street 7. CW6 Hammerton Square (subject to funding) 8. CW3 Potential Court Relocation and Theatre / Music Venue development

Development at Sandygate Square will be delivered through the existing joint venture partnerships between Burnley Council and Barnfield. It is hoped that success here will allow continuation of these partnerships to deliver George Street and potentially private housing on Whittam Street. Partnership working may need to include an organisation with experience of the delivery/operation of student apartments. The George Street Mill site is key to the delivery of the later phases. Large scale residential and campus development should encourage further private sector investments for housing and complementary commercial development at Trafalgar Street Mills. The Council should look to ensure that development at Sandygate, George Street, and Whittam Street includes investment in related public realm. Phase 11 would be dependant on changes in Court provision. Given its likely development costs, the Theatre / Music Venue would need to be viewed as a not for profit facility. Its delivery would require a strong leadership group, possibly a Charitable Incorporated Organisation, who could raise funds and seek opportunities for grant funding.

ECONOMIC BENEFITS

HOUSING

12,981 m² FLOORSPACE (GIA) (academic uses, plus reuse of Victoria Mill) 4,682 m² FLOORSPACE (GIA) (theatre)

458 HOMES

13 NEW JOBS (theatre) UCLan is developing estimates of job creation from its growth plans.

(287 student beds)

613 NEW RESIDENTS

£9.45 million/year NEW HOUSEHOLD EXPENDITURE £367,900 GVA /year from jobs (theatre)

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BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

Canalside East Intervention Area

Masterplan Projects CE1 Finsley Mill development site The Finsley Mill site is allocated in the Local Plan for residential development. The plans include the refurbishment of Finsley Mill for residential and commercial use alongside new housing development. The development would be expected to enhance the character of the canalside conservation area and approach to the town centre along Finsley Gate. CE2 Healey Royd development site The Healey Royd site is allocated in the Local Plan for residential development. The development of the site should include a variety of family homes, an enhanced setting along the canalside and Marlborough Road, and new pedestrian linkages through the site to utilise the existing pedestrian bridge and connections to Finsley Gate.

CE3 Finsley Wharf The Canal & River Trust propose to restore an unused collection of buildings known as Finsley Gate Wharf. The site consists of three Grade II listed buildings, which once restored will be managed commercially. The site has planning permission and funding in place and will include a café / restaurant / function suite, a bar, an education facility, a guest cottage, and a cottage garden. CE4 Finsley Gate Canalside There are a number vacant and under-utilised former mills and industrial buildings along the canalside between Manchester Road and Finsley Mill, many of which are in a poor state of repair. Particular properties have been identified on Healey Wood Road, Stanley Street, and Exmouth Street. Sensitive refurbishment and re-use of these buildings is encouraged. Given the wider aspirations to create a new residential quarter in this area, conversion of these buildings to residential (including student residential) is appropriate, however, new business and commercial uses may also be suitable. CE5 Finsley Gate Public Realm There is a need to upgrade the public realm within the vicinity of Finsley Gate, Parker Lane, Exmouth Street, and Cooper Street. This will help to create better linkages between the canalside and Town Centre, as well as provide an improved setting for residential development and the canalside. Improvements could include removing crash barriers, widening pavements, and introducing new soft landscaping, potentially through the removal of some surface car parking .

Key

CE5

New development Refurbishment Soft landscaping

AY ARY W

N CENTE

CE4

CE1 FI

AT E

CE2

CE3

Context The canalside east area retains some historic and architectural interest but it is currently fractured by surface car parks, the flyover, and a number of large derelict sites. The Canal and River Trust, working with a private sector operator, plans to refurbish Finsley Wharf and open it as a leisure attraction, which will have a positive impact on the area, however, there is a need to secure new long term uses for the Healey Royd and Finsley Mill sites. Wider repair and infilling of the area would also help to enliven the canalside and connect areas south east of the town into the town centre.

BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

Key Project: Healey Royd / Finsley Mill The Healey Royd / Finsley Mill area lies on the periphery of the town centre and is clustered around the Leeds and Liverpool Canal. Formerly occupied by industrial uses, the sites have been derelict for a number of years. Use The sites have historic planning consents for residential development and are both allocated in the emerging Local Plan for residential (C3). The aspiration is that this area should become an attractive new neighbourhood focused on the setting of the canal, incorporating a mix of apartments, town houses, and family homes. Design and quality The development should focus on the canal as its key asset. This should inform the layout and setting of buildings, which should have a positive relationship to the canal in terms of enclosure, views over, and views out of the canal. New streets and spaces should integrate well into the wider street pattern through a permeable and walkable layout. The canal tow path and bridges should be incorporated into good walking links through the sites. Finsley Mill and its chimney should be retained and refurbished as it is a distinctive townscape feature and heritage asset. New buildings should enhance the setting of the mill. Developments should also form strong frontages to both Finsley Gate and

Marlborough Street, with buildings facing on to and animating these streets. The palette of materials should reference high quality locally distinctive materials. High quality suitable and complementary contemporary materials and designs may also be acceptable. Landscape and public realm The main contribution to the public realm will be new residential streets. Given the scale of the sites it is likely that traffic levels will be low, so there is great scope to design streets as places and not just transferors of vehicles. The incorporation of other materials than tarmac to form a shared surface that encourages low vehicle speeds is an opportunity. As part of the development of these sites there is also a need to enhance the existing public realm, especially on Finsley Gate and Cooper Street. This will create an enhanced setting for the development and improved linkages between the sites and the Town Centre. This could include the removal of some surface car parking on Finsley Gate to create more spacious pathways, along with some greening of these routes to tie them back into the canalside. Movement and parking The main access for vehicles into the north and south of the site should be provided from Finsley Gate and Hughes Street respectively. There is also scope for houses to have direct vehicular access from Marlborough Street. Car parking should be provided in line with current parking standards.

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BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

Implementation and Phasing Programme Leader: Private House builders, Canal and River Trust Programme Partners: House builders, Burnley Council as partial landowner, Canal and River Trust, Calico Homes, other landowners Funding: Primarily private finance Phasing: 1. CE3 Finsley Wharf, Mixed Leisure Development 2. CE2 Healey Royd Delivery 3. CE1 Finsley Mill Refurbishment/Adjacent housing delivery 4. CE4 Renovations and Changes of Use. 5. CE5 Finsley Gate Public Realm Change will commence with the delivery of a mixed leisure scheme at Finsley Wharf by the Canal and River Trust on land it controls. The site has planning consent and funding in place and will commence in 2019.

Phase 4 proposes an extension of housing developments to the north, into an area of primarily industrial properties under mixed ownerships. While there are no identified plans for residential uses here at present, it is hoped that a develpoment of critical mass at Finsley Mill and Healey Royd will encourage private sector conversion and redevelopment initiatives, similar to those which have occurred elsewhere. The Council should look to ensure that development across Canalside East includes investment in related public realm.

ECONOMIC BENEFITS

HOUSING

7,883 m² land brought back into use at Finsley Wharf

125 HOMES

16 NEW JOBS (Finsley Wharf )

432 NEW RESIDENTS

Housing development at Finsley Mill and Healey Royd has Outline Planning consent.

£464,000 GVA /year from jobs (Finsley Wharf )

£9.45 million/year NEW HOUSEHOLD EXPENDITURE

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BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

Transport and Access Projects Burnley has benefitted from improvements to key junctions around the town centre including recent work to Active Way/Princess Way and Westgate both of which incorporate enhanced pedestrian crossings. The town centre also has a relatively modern bus station and a recently redeveloped train statin at Manchester Road. This section sets out a number of improvements including the future consolidation of the car parking offer for future enhancements to public transport infrastructure and wayfinding. Car Parking Strategy Looking to the future, the consolidation of parking supply into fewer, larger car parks will help provide a more legible and efficient supply also a more consistent quality and better experience for motorists. This consolidation will also allow for fewer and better points of access onto the local road network at key Ring Road junctions, reducing the access distance travelled on the town’s roads. Rationalising car park provision into fewer but larger facilities will also make better use of the many, smaller and disparate town centre sites presently home to temporary and more permanent parking. TP1 Car Park Signage On entering the town along key gateways car park signage is generally poor. In the shorter term, signage improvements could lead to better utilisation of existing car parks. In the medium to longer term signage will need to be reviewed in

response to changes in car park locations and real time electronic information boards should be considered to improve visitor experience and reduce congestion. TP2 Northern Retail Core A combination of multi-storey and surface parking currently provides 245 spaces in the northern quadrant of the town centre with direct access from Active Way. For many, this is the first-choice car park from the M65. The surface car park is well-used but the multi-storey less so and better use of this location could be made by shoppers in particular. Development of the Curzon Street site will add further parking demand. In the short-term this can be met through the surface car parking next to the existing multi-storey car park. In the longer-term, a new and higher quality multi-storey car park would provide a focal parking resource for the town centre at this key road network access point. TP3 Centenary Way car park The present William Thompson surface car park offers some 205 spaces of good quality, and is another popular choice of parking location for motorists. Along with this, it offers a good connection to the local and wider road network via Red Lion Street’s junction with Centenary Way. These attributes are though similarly delivered at Centenary Way surface car park, and the proposal for a new multi-storey car park on that site offers the opportunity for better ‘footprint’ space efficiency as well as releasing land on the town side of Centenary Way for more appropriate and positive

town centre development. As with the Curzon Street / Pioneer site, a new multi-storey car park of good contemporary quality in this location would provide a more appropriate town centre welcome to visitors along with those other improvements for those walking or cycling, or travelling by bus and rail. TP4 Canalside West parking The present King Street car park, lying to the west of the town centre, offers good quality surface parking and some 161 spaces and is generally used by the Combined Court and commuters. Otherwise it is not well used and this site is likely to be developed over the longer term. There will still, however, be a need for some car parking in the wider Canalside West area, principally to serve the new UCLan campus. This could be met across a number of potential sites subject to good access to the primary route network. Trains TP5 Manchester Road Station Burnley Manchester Road is by far the busiest railway station servicing the town, benefiting from faster and more frequent connections to Manchester, Blackburn / Preston and West Yorkshire, and the national rail network beyond. The station has seen substantial improvement in recent years with approaching 400,000 entries and exits recorded at the station during 2015-16. This represents an increase in annual patronage of around 60% following the reinstatement of the Todmorden Curve and direct services to Manchester in 2015. Rail service quality has

improved, but there is still scope for enhancement – with the aim for a 45 minute journey time to Manchester and two trains per hour. With much of the needed service and infrastructure improvements already made, the scope for further change is limited. Plans are at an advanced stage to increase the amount of car parking following the relocation and demolition of the adjacent ambulance station, which will provide approximately 110 spaces. There is also a need for a new accessible footbridge between platforms. A further improvement would be the introduction of a canal bridge crossing linking the station to Whittam Street and on to the town centre’s core area providing a very useful north-south town centre route. TP6 Burnley Central & Barracks Stations Although generally favourably sited to the north of the town centre, town centre access to / from Burnley Central Station is poor owing to the need to cross the busy Ring Road, though the recent Active Way improvements assist with junction crossing. The station also suffers from several other very significant shortcomings including a poor station building and passenger facilities, low quality public realm and slow ‘stopper’ services on the East Lancashire Line. Burnley Barracks Station, one stop west of Burnley Central, is also on the East Lancashire Line between Preston and Colne and also suffers from the related poor patronage. Station conditions and facilities are similarly lacking, worsened by difficult access by

BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

A feasibility study into the reinstatement of the Skipton - Colne section of the East Lancashire line is currently underway. Reinstatement of this section would do much to improve strategic connectivity between Lancashire and North and West Yorkshire and would specifically benefit both Burnley Central and Burnley Barracks stations in terms of patronage growth. This could act as a catalyst for improvements to station infrastructure and setting. Buses TP7 Bus Travel The bus station is of good contemporary quality and facilities being completed in 2002 and offering comprehensive shelter, bus service information and refreshment opportunities. Its integration with taxis is good with a taxi rank and cycle parking available nearby. The quality of the bus station and the services offered make it a key node for supporting future growth, providing for existing trips and future growth related mass transit in the short mediumterm.

Given this generally favourable picture of existing bus services and use, there is an effective foundation for further service coverage and growth, particularly in the context of improving and widespread service information for passengers. Younger people are particularly likely to take advantage of bus services thereby offering clear potential for meeting the increasing student travel needs through bus service improvement. Matching the specific characteristics of those needs and others will be important in providing a commercially feasible and effective service. A new town centre bus shuttle-type service could potentially provide travel to and from development sites such as the Weavers’ Triangle and Curzon Street and other key destinations.

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foot from the street, it’s very poor street profile, and related poor user awareness.

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Multi-storey car park

TP 8 Wayfinding Like many towns and cities Burnley has developed incrementally over a long period of time. Subsequently there are areas of severance and wayfinding is not always intuitive. It is proposed that a wayfinding strategy is developed to provide a consistent wayfinding system across the town centre and canalside areas.

The bus fleet is modern and of good quality with a strong branding and publicity for the various local and longer distance services to users and potential users alike. Buses have to compete with longestablished car use for short-medium distance trips. There is also similar competition on foot for local trips, and by rail for longer distance journeys. Manchester Road Station

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BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

5. Phasing and Economic Benefits Phasing The following table shows the estimated phasing of the Major Site projects of the Town Centre and Canalside Masterplan, over the next decade. The assumptions related to phasing: • Each Intervention Area has at least one ‘early win’ project where development preparation is already underway and delivery can be expected in the next few years. • Development at Canalside West will be achieved in stages, mirroring the incremental growth plans of UCLan. Beginning with UCLan’s occupation of Victoria Mill, development will then encompass Council-owned land along Sandygate and include an initial student residential development to establish the market here and generate value. The former George Street mill site will then proceed as a later phase, with progress dictated by UCLan’s ultimate growth needs. CW3 Whittam Street is programmed as a midlate stage development, providing time to ensure viability, and benefit from further uplifts in house prices.

Intervention Area

2018

Retail Core

2019

2020

Phase 1: RC2 Charterwalk Shopping Centre – mixed private and public-sector investment

2021

2022

2023

2024

2025

2026

VC 2: Mechanics Institute Feasibility and funding bid

2028

2029+

Phase 3: RC3-5 Public Realm improvement Phase 4: RC3-4 Private Sector led refurbishment of external frontages and shop fronts on St James’ Street/Standish Street… ongoing through the masterplan period

Phase 2: RC1 Pioneer Place – Main Scheme Development

Victorian Core

2027

Phase 5: MSCP Car Park Phase 4: VC1 William Thompson - Scheme Development

Phase 2: VC2 Mechanics Institute Phase 3: VC5-7 Public Realm Schemes

Canalside West

Phase 1: VC3 and 5 Private sector led renovations, frontage improvements and changes of use… ongoing throughout the masterplan period Phase 1: CW1 Phase 2: CW1 Development of Student Phase 6: CW1 UCLan Phase 9: UCLan Major Campus Expansion, George Street Phase 12: CW2 Other UCLan Burnley Accommodation around Sandygate Square. expansion along Uses, George Street Campus Sandygate Expansion – Victoria Mill occupation. Consideration of UCLan Car Parking Provision. Phase 5: CW5 Lower Sandygate public realm – i.e. alongside main development Phase 10: CW6 Hammerton Square CW3Whittam Street – Phase 3 and 4 CW3 Whittam Street Car Park Development, Private Housing and Phase 11: CW3 Potential Court Car Park Housing Development – public realm Relocation and Theatre/Music Venue development brief, marketing and . development land assembly

Canalside East

Eastern Gateway Key

Phase 1: CE3 Finsley Wharf, Mixed Leisure Development

Phase I: EG2 Croft Street Properties – Period of land assembly, financing and other preparation

Project Planning/Enabling Period Delivery

Phase 8: CW4 Trafalgar Street Mills – Likely when a critical mass of housing has been delivered in Canalside. But in practice, private investments could occur at any point Phase 2: CE2 Healey Royd Delivery Phase 3: CE1 Finsley Mill Refurbishment/Adjacent housing delivery

Project Planning/Enabling Period

Phase 4: CE4 Renovations and Changes of Use – Likely when a critical mass of housing has been delivered in Canalside. But in practice, private investments could occur at any point Phase 5: CE5 Finsley Gate Public Realm, subject to funding

Phase I: EG2 Croft Street Properties – Youth Zone Development

Phase 3: EG3 Red Lion Street - Site acquisition by developer/occupier or joint venture agreement

Phase 3: EG3 Red Lion Street – Scheme development

Phase 2: EG1 and 4 Yorkshire Street Public Realm, infill and junction improvements … potentially ongoing through the masterplan period Key

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BURNLEY TOWN CENTRE & CANALSIDE MASTERPLAN

• The VC1 William Thompson Site and EG3 Red Lion Street are shown as mid-late phase projects. In practice, their delivery will be dependant on securing appropriate developer partners and occupiers, and thus may occur at any point over the next decade. • With the partial exception of Canalside West, where implementation will be linked to specific campus/housing developments, public realm schemes are given long implementation periods to provide time for financing and, if required, incremental delivery, particularly where they include frontage improvement options for private businesses. • Delivery of multi-storey car parks will be subject to a further assessment of car parking needs, in the light of projected growth. • CW3 Potential Court Relocation and Theatre/ Music Venue development and particularly VC4 Empire Theatre will be later phase schemes. In each case there are still decisions to be made around the final nature of any development, project leadership, funding and how to address viability and physical constraints. These will take some years to address. • Investment at CW4 Trafalgar Street Mills and to the north of Finsley Mill/Healey Royd (CE4 Renovations and Changes of Use) is unlikely until a critical mass of housing/educational facilities has been delivered in Canalside. However, developers may choose to invest in these locations earlier than shown.

• Conversions in the Victorian Core (VC3 Renovations and changes of use) and elsewhere have already occurred and will continue through the masterplan period, and beyond.

Economic Benefits The overall Economic Benefits of the Town Centre and Canalside Masterplan can be defined as: • Floorspace – Some 50,000 m2 of employment generating floorspace is proposed. Almost a quarter of this will be offices. 47 percent, some 23,400 m2 will be leisure space, including new food and drink opportunity in Curzon Street alongside new recreation and cultural values. • Job Creation – Overall, 1,070 jobs could be generated, including some 350 at Curzon Street. A high-density office scheme on the William Thompson Site could provide 540-600. • GVA Potential – Those 1,050 jobs could generate up to £100 million in GVA, although this is dependant on the type of office scheme secured on the William Thompson Site. A high value financial and professional services occupier could generate £78 million in additional GVA for Burnley. • Rental Returns - £3.12 million in rental returns are possible, with half of this value (£1.61 million) found in the retail and leisure space proposed. The car parks and Youth Zone proposals are measured in terms of their revenue which notionally provides another £1.08 million in value. • Business Rates – Commercial schemes may generate some £1.05 million in additional Business Rates. This excludes several projects which may assume charitable status such as the potential Theatre/Music Venue in Canalside West and Youth Zone in the Eastern Gateway. • Housing Units – Proposals at Canalside provide 583 new homes. 287 are student units. 180 are proposed as private flats in Canalside, along with 116 family homes, although flexibility in the housing mix needs to be maintained to respond to an evolving local market • Population / Expenditure – Indicatively the proposals could increase the Town Centre and Canalside population by 1,045 people, although ongoing conversion/refurbishment projects will greatly increase that. Household expenditure from those 1,045 people is estimated at £14.88 million. Based on past trends, Burnley Borough could retain up to 70 percent of this expenditure, some £10.42 million.

Steve Potter BDP 11 Ducie Street Piccadilly Basin Manchester M1 2JB United Kingdom T: +44 [0]161 828 2200 E: Steve.Potter@bdp.com