Halton Borough Council
   
Chapter 1 - Regeneration
 
RG1 Action Area 1 - Southern Widnes
RG2 Action Area 2 - Central Widnes
RG3 Action Area 3 - Widnes Waterfront
RG4 Action Area 4 - Runcorn and Weston Docklands
RG5 Action Area 5 - Halebank
RG6 Action Area 6 - Castlefields and Norton Priory
   
   
  AIMS AND OBJECTIVES
1 The Strategy of the Unitary Development Plan (UDP) is to promote social, economic and environmental regeneration in order to improve quality of life throughout the Borough. Although the UDP's focus relates to the development and use of land, it also has regard to these environmental, economic and social considerations. For example, the UDP may allocate land for community uses with the justification for this being a social need identified in the Regeneration Strategy.
2 The UDP can help the regeneration of Halton by:
  a acknowledging and responding to stated regeneration objectives;
  b providing policies for areas that require redevelopment and regeneration;
  c allocating specific sites for new development, for example allocating housing sites to meet housing need in the Borough;
  d protecting the natural and built environment;
  e protecting and enhancing existing community facilities such as local centres and schools;
  f ensuring health and safety issues are considered when planning for new development.
  3 The majority of the policies in this chapter of the UDP relate to the identification of Action Areas requiring redevelopment and regeneration and provides for land use change within these areas. Other policies in the Plan will help in tackling other regeneration issues.
   
  BACKGROUND
1 The Borough has significant economic and consequent social problems. It ranks highly amongst all North West districts on the index of social deprivation, displaying characteristics akin to many inner city metropolitan areas. The latest Government Index ranks Halton as the 18th overall most deprived authority area in England and Wales.
2 In addition to the social and economic problems, there are also physical problems, which hinder development and investment. The most serious of these is the early chemical industry's historical legacy of highly contaminated land. This combines with other problems within the Borough to affect investment confidence within the established built up areas.
3 The Council has played a vital role in reducing the physical problems arising from industrial change. For example, over 180 hectares of derelict and contaminated land has been reclaimed since 1974, using Government and European funding. This includes the site on which the Green Oaks shopping development in Widnes now stands. In addition to these initiatives, unfit housing has been improved, Council houses have been improved and new public open space has been created.
4 The regeneration process is a continuing one and whilst great strides have been made towards solving problems in Halton, much still needs to be done. The Council, through the Regeneration Strategy 1998, is now taking a holistic approach to tackling the problems within the Borough. The UDP can help in this process by promoting social, economic and environmental regeneration in order to improve quality of life throughout the Borough.
   
  THE REGENERATION STRATEGY FOR HALTON
5 The Regeneration Strategy was adopted by Halton Borough Council and all members of the Halton Partnership in 1998. The purpose of the Strategy is:
  a to build on strengths and embrace opportunities;
  b to drive forward the regeneration of the Borough;
  c to create a thriving area in which people will want to live, work and invest; and
  d to revitalise Halton.
6 The Strategy identified both 'areas' and 'themes' for regeneration. It defined geographical areas within which regeneration is needed, while the 'themes' relate to the whole of the Borough and are applicable to all areas, for example crime and community safety, community development and sustainable economic development and employment.
7 The Strategy provides the context for other strategies and plans for Halton. The UDP therefore seeks to implement, where appropriate the objectives of the Regeneration Strategy as land use policies and proposals.
   
  ACTION AREAS
8 These are areas within which wider Council enabled regeneration efforts will be aided by flexible land use policies, allowing opportunities for old redundant land uses (particularly industry) to be replaced by new uses such as open space, housing and new commercial development. In the Halton Local Plan, the designation of 'Primarily Employment and Residential Areas' assumed that these uses would continue. This assumption has now been removed within the Action Areas to allow for more mixed- use development.
9 These Action Areas are designated in accordance with the Town and Country Planning Act 1990 para. 12(8). This states that Part 2 of a unitary development plan may designate any part of the local authority's area as an Action Area. An Action Area is an area they have selected for the commencement, during a prescribed period, of comprehensive treatment by development, redevelopment or improvement (or partly by one and partly by another method). If an area is so designated that Part of the plan shall contain a description of the treatment proposed by the authority. The Development Plan Regulations 1999 state that the 'prescribed period' is 10 years for Action Areas.
10 In accordance with the Act, the Action Area policies set out the acceptable uses and opportunities for new development within each Action Area. The Action Area plans will be prepared as 'Supplementary Planning Documents' (SPDs).
11 Each Action Area is identified on the Proposals Map but only a few land use proposals are shown within them where a degree of certainty exists. Some areas worthy of protection are also shown. Where boundaries of new development are uncertain, the policy lists a range of opportunities for new development and the classes of development, according to the Town & Country Planning (Use Classes) Order 1987, that would be allowed in principle.
12 In order to make sure that the period of uncertainty for those areas is minimised, each Action Area will be subject to a study that will identify sites for new development, opportunities for improved access, environmental improvements and other land use proposals. These studies will take place as part of wider corporate initiatives to implement the Council's Regeneration Strategy and will therefore take account of other social and economic development policies outside the scope of the UDP.
13 The Action Area Plans will have the status of 'Supplementary Planning Documents' as described in Planning Policy Statement 12: Local Development Frameworks (2004), that will supplement the policies and proposals of the plan itself. As such it will be taken into account as a 'material consideration' in assessing planning applications. Each Action Plan will be subject to consultation with the general public, businesses and other interested parties and will be the subject of a Council resolution to adopt it as a supplementary planning document.
14 The boundaries of the Action Area Plans are purely land use based and may be different to those areas identified in the Council's Regeneration Strategy wherein a broader range of actions to promote regeneration will be undertaken.
   
  REDEVELOPMENT ON PREVIOUSLY USED LAND
15 During the Plan period, opportunities for redeveloping larger areas of derelict and contaminated land may come forward through the Action Area policies of the Plan. Since it is not certain where and when these opportunities may arise, it was not considered possible to include an estimated redevelopment figure within Policy H1. However, the policies in the Plan are flexible enough to enable the Council to react to redevelopment opportunities. The phased approach to the release of housing land in Policy H1 places priority on the development of previously-used (brownfield) land over the development of greenfield land. In accordance with Policy H1, development of brownfield land within the existing urban area will be permitted, provided that it is in compliance with the policies in the Plan, irrespective of whether or not the land is allocated in the policy.
16 Regular monitoring of housing land take-up, including land not specifically allocated in the Plan, will enable the Council to review the need for further development on greenfield sites in Phases 2 and 3. Should the supply of previously-used (brownfield) land greatly exceed the estimated provision in Policy H1 during the early years of the Plan, it may not be considered necessary to release all of the greenfield sites identified in Phases 2 and 3. The plan, monitor and manage approach will enable the Council to be flexible in reacting to the changing circumstances. Site allocations will be reviewed and up-dated as the Plan is reviewed. Further guidance on the phased approach to the release of housing land is contained in the Housing Chapter of the Plan.
   
  MIXED USE AREAS
17 Government Planning Policy Guidance for Housing (PPG3) 2000, states that local authorities should promote development that combines a mix of uses. The Government considers that it is important not only to accommodate new households but also to bring new life to our towns and cities. It states that local planning authorities should facilitate mixed use developments by identifying appropriate sites in development plans, preparing development briefs for sites, assembling sites for redevelopment and by adopting a flexible approach to planning standards.
18 It is considered that this approach would help to stimulate regeneration in Halton in suitable areas. Action Areas policies have therefore been designed to facilitate mixed use developments as advocated by PPG3.
   
  PART 2
  POLICIES AND PROPOSALS
  ACTION AREAS
  RG1 ACTION AREA 1 SOUTHERN WIDNES
  1 The Southern Widnes Action Area is proposed as an area of mixed uses, including housing. The following uses will be acceptable:
   
  • Business uses (B1);
  • General industry (B2), provided that there is no detrimental affect on residential amenity;
  • Residential institutions (C2);
  • Dwelling houses (C3);
  • Community facilities (D1);
  • Shops (A1), that serve the local community provided that UDP retail policies are complied with;
  • Food and drink outlets (A3) serving the local community;
  • Recreation and leisure facilities serving the local community (D2);
  • Open space and public spaces.
  PRINCIPLES OF DEVELOPMENT
  2 There should be a mix of housing and employment uses to provide opportunities for people to work within walking or cycling distance of home.
  3 A variety of housing types in terms of size and tenure will be required.
  4 A variety of employment uses should be provided for, including provision for small businesses.
  5 The car should be safely accommodated without encouraging its use in preference to other means of transport. Parking standards will be assessed in the light of the detailed impact of development proposed.
  6 The layout of streets, buildings and spaces should be designed to minimise journeys by car and encourage movement by foot or bicycle.
  7 The visual quality of the built and natural environment should be enhanced.
  8 The quality of design of any new development should enhance its surroundings in order to raise the overall image and appearance of the area.
  9 Public spaces should be included as an integral part of the design of schemes within the Action Area.
  JUSTIFICATION
10 Southern Widnes is the old Victorian heart of Widnes where an unhealthy mixture of heavy industry and poor quality housing has largely disappeared. An Action Area Plan prepared in the 1970s by the Council has been successfully implemented with new light industry, new and improved housing, reclaimed land for a riverside park at Spike Island and the Catalyst Museum tourism attraction.
11 Despite these efforts the migration of people to more attractive suburbs, the physical isolation of the area and the lack of sustained private investment has resulted in continuing social deprivation and a poor environment. However the Southern Widnes area remains an area of mixed industry and housing with a strong community identity in West Bank. The industrial and commercial area has a mixture of small and large businesses creating a vibrant employment community.
12 The Regeneration Strategy for Halton concludes that, 'This is an area in need of investment in its social and physical environments. The advantages of a close community are being eroded by a lack of a positive vision and investment in the area. There is still a need to instil confidence in the area to make it a more desirable place to live.'
13 There is therefore a pressing need for regeneration within the Area particularly investment in the current housing stock, redevelopment of derelict and contaminated sites and improving the overall living and working environment.
14 The aim for this Action Area is therefore to provide a convenient, efficient and pleasing place, within which people can live, work and pursue their daily lives.
15 In order to stimulate regeneration it is essential that the existing residential community is made more sustainable. Planning policies can assist this process by encouraging the development of additional housing and local shopping, leisure and community facilities. New employment opportunities can also be encouraged by development or redevelopment of land for new businesses that are compatible with a mixed-use area. An Action Plan for the area will identify sites for development opportunities, for environmental improvements and improved access to, from and within the area.
16 Regeneration opportunities, which will be considered in the Action Plan, are as follows:
  a Open space and sports facilities on vacant and derelict sites;
  b Housing on suitable infill sites;
  c Neighbourhood shops;
  d New passenger railway station;
  e Conservation area enhancement at West Bank Promenade;
  f Tourism development based on Spike Island and Catalyst Museum;
  g Water based recreation facilities;
  h Relocation of bad neighbour uses.
17 The UDP directs large-scale retail and leisure development to the Town Centres and allocated sites. Therefore, any retail, food and drink or leisure provision within this Action Area should be to serve the local community only, in the interests of sustainability.
  Map 3 Regeneration Action Areas
  RG2 ACTION AREA 2 CENTRAL WIDNES
  1 The Central Widnes Action Area is proposed as a mixed-use area for uses supporting and enhancing the vitality and viability of Widnes Town Centre. The following uses will be acceptable:
   
  • Financial and Professional Services (A2);
  • Food and Drink (A3);
  • Business uses (B1);
  • Hotels (C1);
  • Residential Institutions (C2);
  • Dwelling Houses (C3);
  • Non-residential institutions (D1);
  • Assembly and leisure (D2);
  • Shops (A1) that serve the local community, provided that UDP retail policies are complied with.
  PRINCIPLES OF DEVELOPMENT
  2 New development should be well related to the Town Centre and should be designed to allow ease of pedestrian access within the Area as a whole and to and from the Town Centre.
  3 The quality of design of any new development should enhance its surroundings in order to raise the overall image and appearance of the area.
  4 Housing development should be of a higher density of greater than 50 dwellings per hectare which is appropriate to the central and accessible location.
  5 Parking provision lower than the maximum contained in policy TP12 will be expected in order to accommodate high density residential development and to reflect the edge of centre location and the opportunity for shared use parking areas.
  6 It incorporates bus routes and bus stops that enable maximum access by public transport as close as possible to the development. (See policy TP1)
  7 Development should not be unsightly nor a source of noise, dust, odour or pollution that is considered to be detrimental to the future regeneration prospects of the area as set out in the Action Area Plan.
  JUSTIFICATION
8 In the past this area was the main shopping area for Widnes. Over time the Town Centre has migrated northwards and the area has been in decline. Many small shops and businesses have disappeared, leaving behind run down and neglected buildings through years of under-investment.
9 The Area continues to fulfil a role within Widnes, with a concentration of civic and public buildings, offices and a leisure centre. The aim therefore within this Action Area is to achieve regeneration by building upon this revised role.
10 A wide range of uses will be acceptable within the Central Widnes Action Area including housing. This is to allow flexibility for development proposals in the area. The uses however should be related to the Town Centre both in terms of the type of use and in the actual design and development of the proposed use. For example by building flats above new commercial premises and conversion of existing buildings for mixed uses.
11 There are opportunities for small-scale retail developments within the area to complement the main shopping centre but not to compete with it. Therefore this development must conform to the plan's general retail policies. It is expected that new retail development should take place through redevelopment of existing worn out buildings unsuitable for modern retailing uses in order to aid regeneration.
12 Parking provision to the maximum levels will not be expected in this area due to the nature of the area and the edge of centre location. In high density residential areas there is often a trade-off between density and parking. In achieving other residential opportunities, e.g. living over the shop, parking may not be achievable or appropriate. Other uses equally will not need to achieve maximum car parking and may utilise shared use parking and public parking facilities. The accessible location close to the town centre and public transport facilities will offset these lower parking levels.
  RG3 ACTION AREA 3 WIDNES WATERFRONT
  1 Within the Waterfront Action Area the following uses will be acceptable: -
   
  • Employment uses (B1, B2 & B8);
  • Residential uses (C2 & C3);
  • Leisure uses (D2) where they comply with Policy TC1(2);
  • Open space; Food and Drink (A3);and
  • Bulky goods retail warehousing within Class A1, where it complies with Policy TC1(2).
  PRINCIPLES OF DEVELOPMENT
  2 The nature and design of new development should take advantage of the waterside location beside the St. Helens Canal and Mersey Estuary.
  3 A significant improvement should be made to the waterside environment.
  4 Provision should be made for increased public access to the waterside.
  5 Access into the area should be improved particularly in relation to public transport access.
  6 The visual quality of the built and natural environment should be enhanced including along routes into the area.
  7 Development should not prejudice the overall objective of securing a further crossing of the Mersey east of the existing bridge.
  8 Development should not be unsightly nor a source of noise, dust, odour or pollution that is considered to be detrimental to the future regeneration prospects of the area as set out in the Action Area Plan.
  9 Provision should be made for improved pedestrian links from the Action Area to Widnes Town Centre.
  JUSTIFICATION
10 The declining employment area used to be a major location for the chemical industry in Widnes. Various plant closures have taken place leaving behind a legacy of contaminated land. This forms a large and wide band of vacant land and a disused chemical tip, adjacent to the Mersey Estuary.
11 The opportunity exists to take advantage of the waterside location and regenerate the whole area. This may be by reclaiming the contaminated land for employment or open space uses, and for housing where this is possible. The creation of new waterside open spaces in this area will help to compensate for open land that will be lost to development in the area allocated for housing and business uses in the proposed North Widnes Development Area.
12 The Review of UDP Retail and Leisure Issues [Final Report Oct.2002] identifies capacity for additional retail warehousing in Widnes over the period up to 2016 in excess of that likely to be accommodated within the defined town centre. On the basis of a sequential approach, the Widnes Eastern Bypass site and the northern part of this Action Area (north of the safeguarded Shell Green rail route) are seen as Widnes' best long- term opportunities for the expansion of bulky goods retail warehousing to accommodate this quantitative need. This particular form of retail development would be likely to complement the current role and performance of Widnes town centre. A condition of planning permission will be used to restrict the use to the sale of bulky goods. This would be subject to the proposals being within walking distance of Widnes Town Centre and improved pedestrian and public transport links with the town centre. The development of the Venture Fields area for mixed retail warehousing, leisure and employment will enable the Widnes waterfront to be linked to the existing town centre.
  RG4 ACTION AREA 4 RUNCORN & WESTON DOCKLANDS
  1 The Runcorn and Weston Docks Action Area is proposed as an area primarily for the development of freight handling and storage and distribution activities. The following uses will be acceptable: -
   
  • Business (B1);
  • General Industry (B2);
  • Storage and Distribution (B8);
  • Open space; Uses ancillary to an employment area; Education and housing.
  PRINCIPLES OF DEVELOPMENT
  2 Part of the Area should be developed as appropriate for a rail freight facility.
  3 Provision should be made for the commercial dock to continue and where possible enhanced; however should this not be commercially possible other compatible uses in line with this policy would be allowed.
  4 Existing rail links should be enhanced within any new development.
  5 Road access should be improved to encourage development and remove traffic from adjoining residential areas. Road access away from residential areas should be in place before any new development becomes operational. Any development should not prejudice the possibility of creating an additional access into the area from Picow Farm Road or the improvement of Percival Lane.
  6 The line of the Bridgewater Locks should be safeguarded. Development in that area should be planned to assist the future reopening of the navigable connection between the Bridgewater Canal and the Ship Canal.
  7 The visual quality of the built and natural environment should be enhanced.
  8 The quality of design of any new development should enhance its surroundings in order to raise the overall image and appearance of the area.
  9 Advantage should be taken of the waterside location within any new development.
  10 Provision should be made for increased public access to the waterside where this is compatible with continuing commercial use of the waterway, whilst ensuring public safety.
  11 Advantage should be taken of the location of the Weaver Navigation within the area, both commercially and as a leisure and tourism facility.
  12 Development should not be unsightly nor a source of noise, dust, odour or pollution that is considered to be detrimental to the future regeneration prospects of the area as set out in the Action Area Plan.
  JUSTIFICATION
13 This is predominantly an area of employment uses and includes commercial docks, general industry, storage and distribution uses, along with a large amount of derelict and underused land.
14 Whilst Runcorn Docks continues as a freight handling facility, other parts of the area have been in decline due to increased carriage of goods by road. The legacy of previous uses includes large worn out buildings with few services, and large areas of derelict land. Road access is poor, with a history of conflict between heavy goods traffic and local residents. The general image and appearance of the area is poor.
15 There is now an opportunity to reverse this decline and build upon the strengths of the Area for the handling and storage of freight, and the location of the area on the Manchester Ship Canal and with links to the West Coast Main Line. The redevelopment of the area for employment uses will provide much needed employment for Halton.
16 On an area of land adjoining the Dukesfield housing area there is an opportunity for building a new education building for Halton College. Alternatively this area would be suitable for waterside housing. Development in this area should take full account of the historic features, including Bridgewater House and the former Bridgewater Locks. Development should actively assist the goal of reopening for recreational navigation the connection between the Bridgewater Canal and Ship Canal. Recreational navigation on the Ship Canal is only practical on a limited and controlled basis.
17 In building on the strengths of the Area, the weaknesses of derelict land, access, services and poor image and environment should be overcome.
  RG5 ACTION AREA 5 HALEBANK
  1 Within the Halebank Action Area, the following uses will be acceptable: -
   
  • Business uses (B1);
  • Residential institutions (C2);
  • Dwelling houses (C3);
  • Community facilities (D1);
  • Shops serving the local community (A1);
  • Food and drink outlets serving the local community (A3);
  • Recreation and leisure facilities serving the local community (D2);
  • Open space and public spaces.
  PRINCIPLES OF DEVELOPMENT
  2 There should be a mix of housing and employment uses to provide adequate opportunities for people to work within walking or cycling distance of home.
  3 A variety of housing types in terms of size and tenure will be required.
  4 A variety of employment uses should be provided for including provision for small businesses.
  5 The car should be safely accommodated without encouraging its use in preference to other means of transport. Parking standards will be assessed in the light of the detailed impact of development proposals.
  6 The layout of streets, buildings and spaces should be designed to minimise journeys by car and encourage movement by foot or bicycle.
  7 The visual quality of the built and natural environment should be enhanced.
  8 The quality of design of any new development should enhance its surroundings in order to raise the overall image and appearance of the area.
  9 Public spaces should be included as an integral part of the design of the Action Area.
  10 Community facilities should be provided within the Area including a local shopping centre to serve the needs of the community.
  11 Road and public transport to the area should be improved including the safeguarding of Ditton railway station to enable its re-opening.
  JUSTIFICATION
12 The aim within this Action Area is to provide a convenient, efficient and pleasing place within which people can live, work and pursue their daily lives.
13 Halebank is currently an isolated residential area adjoining a mixed quality employment area, home to a variety of small businesses. There is a need for regeneration within the Area particularly in relation to the redevelopment of vacant and derelict sites, improving housing in the area, providing community facilities and improving the overall living and working environment.
14 On the edge of the residential area is a large food supermarket in older premises where relocation and redevelopment is anticipated. This currently acts as a neighbourhood centre for the local community as well as serving a wider catchment area. Its relocation will mean that local people without a car will not have convenient access to a local food store. Redevelopment of this site should therefore allow for replacement neighbourhood shops, including a food store either on this site or elsewhere within the Halebank area.
15 Uses acceptable within the Area are those appropriate to a mixed residential and employment area.
16 New housing development is proposed in the Action Area to provide a more balanced mix of housing types and tenure in line with Government policy. In order to ensure that this expanded neighbourhood is more sustainable, new housing development will help to support local facilities such as shops, school and public transport services.
17 A new or improved road link to the main road network will make the area less isolated and more attractive to businesses and create more local employment opportunities.
18 An Action Plan will be prepared for the Area in close co-operation with the local community. This will explore the following opportunities:
  a The development of a new neighbourhood shopping area.
  b Additional housing development through redevelopment of land currently or previously used for business where ground conditions and location are favourable.
  c Improved road and public transport access using the railway and possible new road links to the A562 Speke Road.
  d New woodland planting on the urban fringe.
  RG6 ACTION AREA 6 CASTLEFIELDS AND NORTON PRIORY
  1 Development within this area for new housing, open space and community uses will be permitted:
  2 Where it is required for the replacement of existing housing and community uses which may become redundant ; and
  3 To allow for the restructuring of the existing housing and open space areas to accommodate new housing and community facilities.
  JUSTIFICATION
4 The Castlefields / Norton Priory area is proposed for designation as an Action Area to provide a flexible planning policy framework to accommodate any major development proposals that may arise from:
  a A joint study by the Housing Associations LHT and CDS into the future of the Castlefields Estate. This will include any prospective reshaping of the estate layout (currently serving a significant concentration of deck access flats, which are difficult to let);
  b The review by Halton Borough Council, as Local Education Authority (LEA), of secondary and post-16 education provision in Runcorn and takes into account the potential of the former Norton Priory School (now demolished) and its associated playing fields to accommodate new uses.
5 The overall aim is to help facilitate a prosperous and sustainable community.
6 The overall development of an Action Area will be guided by a development framework which:
  a Takes account of any restructuring of the area formulated by the Housing Associations in consultation with their tenants and stakeholders;
  b Takes account of any restructuring arising from the proposals of the Borough Council as LEA and as provider of leisure services;
  c Provides for a range of alternative housing, business, community or recreational uses for any sites or buildings that may become redundant;
  d Considers the relationship of the existing and new built development with the local landscape and amenities including the Town Park, Bridgewater Canal and the Norton Priory and Walled Garden;
  e Considers the fuller utilisation of these visitor attractions and the need for associated facilities (for example, visitor centre, accommodation for touring caravans, etc);
  f Sets the framework for improved access arrangements (for example, measures to increase the usability of the Busway system, improved road linkages with adjacent neighbourhoods and with Norton Priory Museum, etc).
 
 
 
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