Britannia Mill, Manchester Road, Mossley Planning Statementplandocs.tameside.gov.uk/anitepublicdocs/00220467.pdf · Britannia Mill, Manchester Road, Mossley Planning Statement

Britannia Mill, Manchester Road, Mossley

Planning Statement on behalf of English Braids Ltd

December 2015

CONTACT Thomas Relph Planner Nexus Planning Eastgate 2 Castle Street Castlefield Manchester M3 4LZ T: 0161 819 6570 E: [email protected]

Planning Statement Britannia Mill, Manchester Road, Mossley

Contents

1.0 Introduction ................................................................................................................................ 4 2.0 Application Site and Setting ...................................................................................................... 8 3.0 Proposed Development ........................................................................................................... 12 4.0 Planning Policy ........................................................................................................................ 14 5.0 Planning Appraisal .................................................................................................................. 22 6.0 Conclusions ............................................................................................................................. 33

Nexus Planning Page 3


1.0 Introduction

1.1 This Planning Statement has been prepared on behalf of English Braids by Nexus Planning

to support an outline planning application at Britannia Mill, Manchester Road, Mossley.

The Proposed Development

1.2 The outline application is for the demolition of the existing mill building and the

redevelopment of the site for a mixed use development comprising of approximately 750 sqm

of A1 retail floor space and the erection of approximately 62 no. two/three bedroom

apartments. Permission is sought for access. All other matters are reserved.

Application Documentation

1.3 This Planning Statement has been prepared as part of a suite of plans and documents that

form the planning application submission. The application comprises:

• Planning Application Form and Certificates (Nexus Planning);

• Design and Access Statement (Broadway Malyan);

• Heritage Assessment (Oxford Archaeology);

• Illustrative Plans and Drawings (Broadway Malyan);

• Retail Assessment (Nexus Planning);

• Marketing Report (Rodger Hannah & Co.);

• Noise Assessment (AEC Ltd);

• Extended Phase 1 Habitat Report (Appletons);

• Bat Survey (Appletons);

• Phase 1 Land Contamination Assessment (WSP);

• Transport Statement (Croft Transport Solutions);

• Flood Risk Assessment (Betts Associates);

• Utilities Statement (WSP); and,

• Statement of Community Involvement (Nexus Planning).



Pre-Application Consultation

Meetings/consultations with Tameside Council

1.4 Nexus Planning undertook initial pre-application discussions with Tameside Council for the

proposed redevelopment of the site. Tameside Council Officers advised at that time further

marketing of the site would be required to demonstrate that there is no demand to re-use the

building for employment uses. The applicant subsequently instructed Rodger Hannah & Co.

to market the site. Since that time no substantive interest has come forward to rent or acquire

the site for employment use. The marketing of the site is considered further in the marketing

report prepared by Rodger Hannah & Co that accompanies this application.

1.5 Nexus Planning undertook further pre-application discussions with Tameside Officers Liz

Knowles (LK) (Planning Officer) and Graham Holland (GH) (Design Officer) on the 14th

August 2015. As part of this meeting, the emerging scope of the application was discussed

and the required supporting information agreed. This is reflected in the material submitted in

support of this application.

1.6 It was also agreed that a public consultation exercise would be undertaken with local

residents, elected members and Mossley Parish Council.

1.7 A further meeting was then held with Jason Dugdale (Planning Officer) of Tameside Council

on the 23rd November 2015. This meeting was to discuss the draft proposals prior to the

formal submission of the outline planning application. It was agreed that the marketing

undertaken since 2011 was appropriate.

1.8 Alongside informal discussions with Tameside Officers, Croft Transport undertook informal

pre-application discussions with Tameside Council Highways (Steve Oxford) regarding the

proposed access to the proposed development. The Highways Officer has informally

confirmed that in principle the proposed development can be accessed from a combination of

a new access on Manchester Road and an improved Queen Street.

Public Consultation

1.9 A Statement of Community Involvement (SCI) has been prepared by Nexus Planning and

accompanies this statement. The SCI provides details of the public consultation undertaken

by the applicant with local residents, elected members and Mossley Parish Council. The SCI

is a separate document which should be read in conjunction with all other supporting

application documents. A brief summary of the public consultation undertaken is detailed

below.


Planning Statement Britannia Mill, Manchester Road, Mossley 1.10 Following initial advice from Tameside Planning Officers, Nexus Planning sought a meeting

with Local Ward Councillors and distributed a leaflet to local residents to inform members of

the public about the application proposals.

1.11 Following the meeting with Local Ward Councillors on the 15th October 2015 it was agreed

that Nexus Planning would also meet with the Mossley Parish Council and hold a public

exhibition for members of the public to attend and provide further comments. The initial

comments from the Local Ward Councillors are detailed in the SCI.

1.12 Nexus Planning subsequently met with Mossley Parish Council on the evening of the 28th

October 2015 to provide details of the application proposals. A public exhibition for members

was also held on the 17th November 2015, between 2pm – 7pm. A full summary of the

comments made by Mossley Parish Council and those that attended the Public Exhibition are

detailed in the SCI.

1.13 Following public consultation with stakeholders of Mossley, a letter was also distributed to

local residents of Queen Street providing a summary of the application proposals and an

opportunity to provide comments direct via e-mail or by written correspondence.

1.14 Following the various meetings and comments during the public consultation, the Applicant

developed the scheme in a number of areas, namely:

• The mix of units – the initial outline proposals was for a residential development

comprising of solely 2 bed apartments, following discussions and comments a mix of

3 and 2 bed apartments and a reduction in the indicative number of apartments has

been considered and is now proposed.

• Access and parking – a number of comments were made by residents for the

proposed associated access and parking arrangements for the proposed

development. Further technical work from Croft Transport Solutions has been

undertaken to support the application proposals.

• Queen Street – the proposed development provides an opportunity to make

improvements to Queen Street.

Overview

1.15 The application site is host to an existing building, Britannia Mill, which has been vacant for a

number of years and is now is in a poor state of repair. The mill building has been marketed

for the last 4 years with no viable or serious interest in retaining the site for employment use.


Planning Statement Britannia Mill, Manchester Road, Mossley 1.16 The application site is in a highly sustainable location, in particular its location to local

facilities, notably Mossley train station located adjacent to the site.

1.17 The principle to demolish Britannia Mill, for the redevelopment of a mixed use development

of retail and residential development is considered to be acceptable. We have provided

sufficient information to meet the four policy tests within Tameside Unitary Development Plan

Policy E3, and have demonstrated that there is no demand for the retention of the building

for employment use.

1.18 It has also been demonstrated that there are no sequentially preferable sites that can

accommodate the scheme in the Mossley area.

1.19 This statement further demonstrates that there are no technical considerations that would

prevent the development from being appropriate on site, and that the proposed development

meets the presumption in favour of sustainable development.

Report Structure

1.20 The remainder of this report is structured as follows:

• a review of the site and its surroundings;

• a brief review of the planning history of the site;

• a review of planning policy;

• planning appraisal; and,

• Conclusions.



2.0 Application Site and Setting

The Application Site

2.1 The application site is an existing brownfield site approximately 0.4ha in extent. The existing

three storey Britannia Mill building fronts onto Manchester Road.

2.2 The site has a significant slope from east to west due to the natural topography of the Tame

Valley. To the rear of the site is an area of hardstanding which was used as a service yard.

2.3 Britannia Mill was previously used to manufacture rope; the building has been vacant for

several years and is now in a poor condition both aesthetically and structurally, with the front

façade of the building splitting from the remaining structure. Throughout the building, both

internally and externally, vegetation has begun to grow forcing through the stone work

causing the walls to crack adding to the buildings instability.

2.4 The application site has two existing access points, one directly from Manchester Road, and

the other existing access via Queen Street (an unadopted road) to the south. Queen Street

currently serves the adjacent Queen Street residents, the Emmaus building and other

residential properties in the valley.

The Surrounding Area

2.5 The application site is located within the area known as Bottom Mossley. The site is bound

by a small residential development comprising of two storey properties to the north and

Britannia Inn, a two storey public house, immediately adjacent to the south.

2.6 To the rear of the site (to the east) the site is surrounded by a variety of uses comprising a

new residential development and vacant industrial units that are sited at lower level to the

existing mill building in the valley.

2.7 Adding to the mixed character of the surrounding area, Queen Street, at its junction with

Manchester Road, is fronted by a number of terraced properties which face the southern

elevation and service yard of the existing mill. Emmaus, a local homeless charity and centre

is located to the east of the Queen Street properties, adding to the variety of uses in the local

area.

2.8 The wider area is predominantly residential development with a new housing development

further along Manchester Road to the north of the site. Terraced properties along the streets

are more common towards the Bottom Mossley parade of shops, and down the various side



streets following the sloping topography of the area, typical of old industrial mill towns. The

River Tame is also located to the east of the site.

2.9 The Bottom Mossley parade of shops to the south of the site provides a range local services

and leisure needs, such as Public Houses, takeaways, a local convenience store, Post Office

and a Pharmacy.

2.10 To the west of the site,Top Mossley provides a wider range of local services including a Co-

Operative local food store.

2.11 Manchester Road, which runs through Bottom Mossley acts as a highways network from

Manchester to Mossley to Greenfield and Saddleworth.

2.12 A summary of the local facilities and services in the local area are detailed below.

Local Facilities

Public Transport

2.13 Mossley train station is located on the opposite side of Manchester Road to the application

site. The station accommodates daily services every half hour to Manchester Victoria and

Ashton-under-Lyne.

2.14 The Bus Stop on Manchester Road in front of the mill building accommodates bus routes 343

and 354 providing regular daily services to Oldham and Ashton-under-Lyne respectively.

2.15 Both bus and train services from the site provide access to Ashton-under-Lyne, which in turn

provides links to the Manchester Metrolink services and links to the wider Greater

Manchester regions such as Altrincham, Bury, Oldham and Rochdale.

2.16 The application site is well served by public transport.

Retail

2.17 There are two locations within close proximity to the application site that provide access to

retail services. The parade of shops approximately 200m south (4 minutes walk) on

Manchester Road in Bottom Mossley and the local centre of Top Mossley located 1km (15

minutes walk) west of the site. Both local centres provide a range of local retail opportunities.

2.18 A wide range of retail facilities can therefore be readily accessed from the application site.

Play Areas/Open Space


Planning Statement Britannia Mill, Manchester Road, Mossley 2.19 Seel Park located 300m west (5 minutes walk) of the application contains a good quality local

equipped area of play, a football pitch and a hardsurfaced netball/basketball court, which

provides a good choice and vairety of open play space for local residents.

2.20 Mossley AFC is situated 100m north of Seel Park (6 minutes walk from the application site)

providing an alternative leisure activity to local residents. Mossley junior football pitches

located 650m south (9 minutes walk) of the application site off Egmont St provides further

informal open play spaces and a smaller local area of play for local residents.

2.21 The application site is well served by local areas of play, amenity open space and leisure

facilities for residents within an accessible distance.

Employment

2.22 There are a number of local employment opportunities within Mossley in the leisure and retail

trade. There are industrial/manufacturing businesses approximately 650m east of the site (9

minutes walk) towards the River Tame such as Greenbridge Engineering and GMS Thermal

Products which provide a specialist employment offer.

2.23 However, the regular public transport services located near to the site allow for commuting to

key employment destinations such as Ashton-under-Lyne and Manchester, allowing

residents to pursue further employment opportunities in the wider region.

2.24 The site is therefore extremely well served by employment opportunities.

Education

2.25 St Joseph’s Catholic Primary School, Milton St Johns Church of England Primary School and

Nursery and Livingstone Primary and Nursery School are located 800m (10 minutes walk),

600m (8 minutes walk), 400m (7 minutes walk) respectively from the application site,

demonstrating a number of primary education facilities within close proximity to the

application site.

2.26 The nearest secondary school facilities in close proximity to the site is the Mossley Hollins

High School which is located 1.7km (20 minutes walk) east of the application site.

2.27 The application site is well served by education facilities. It is anticipated that a financial

contribution will be sought by the Council to help support the existing education provision in

the local area.

Health


Planning Statement Britannia Mill, Manchester Road, Mossley 2.28 Mossley Medical Practice is located 150m (2 minutes walk) immediately south of the

application site, providing daily services to local residents, with the nearest hospital with A&E

facilities is Tameside Hospital located 4.6km from the application site.

Summary

2.29 The application site is well served my modes of public transport principally Mossley train

station located immediate adjacent to the site, which provides regular services to Ashton-

under-Lyne and Manchester Victoria.

2.30 The local retail services surrounding the application site provide day to day local facilities,

whilst the links to other destinations via public transport allow local residents to go to

alternative and larger retail destinations. This is similar to the employment position, as local

needs can be met in Mossley with the opportunity to commute to Ashton-under-Lyne and

Manchester for alternative employment options.

2.31 The site is well served by amenity and health services, through Seel Park and the Mossley

Medical Practice.

2.32 The application site is therefore in a highly sustainable location.



3.0 Proposed Development

3.1 This section of the statement outlines the proposed development and confirms what is being

submitted to Tameside Borough Council for approval. The application proposals are for

outline planning permission for the site’s redevelopment with approval of access details. All

other matters are reserved for subsequent approval. The submission incorporates illustrative

proposals of a mixed use development on site and the associated accesses to the

development only, with all other matters such as landscape, scale, layout and appearance to

be reserved.

The Built Development

3.2 It is proposed that Britannia Mill will be demolished. The illustrative proposals seek to replace

the existing mill building with the erection of 3 new buildings that will accommodate the

proposed mixed use on site.

3.3 The illustrative site plan demonstrates that a mixed use development comprising of

approximately 750sqm of retail floor space and approximately 62 apartments can be

accommodate on the site.

3.4 The illustrative layout demonstrates a ground floor unit comprising of approximately 750sqm

of A1 retail floor space, with residential units above. The illustrative layout also demonstrates

that to the rear of the unit on Manchester Road, two new units can be accommodated

delivering the remaining residential mix.

3.5 A set of parameter plans have been submitted alongside the illustrative proposals which

outline the maximum and minimum height and width of each of the proposed units, this will

allow flexibility in delivering the development at the reserved matters stage of the

development, whilst establishing the key development principles.

3.6 It is demonstrated within the Design and Access statement that undercroft/under-ground on-

site parking can be provided. It is also demonstrated within the submission that 28 parking

spaces for the approximate size of the retail unit and 107 spaces for the approximate number

of residential apartments can be provided on site in line with the Council’s parking standards.

3.7 The illustrative layout therefore demonstrates that the outline proposals for a mixed use

development comprising retail and residential development can be accommodated on site.



Access

3.8 The application proposals are seeking approval for the access arrangements. The

application proposals demonstrate a new proposed access off Manchester Road to

accommodate the retail element and approximately 24 residential apartments, with the

existing access off Queen Street accommodating up to 38 residential apartments and refuse

vehicles.

3.9 The illustrative site plan and access drawings demonstrate that appropriate visibility and safe

access and egress can be achieved at the Manchester Road access, which is discussed in

more detail in section 6 of this statement. This access could potentially accommodate the

whole development, however it is proposed to utilise Queen Street to serve part of the

development.

3.10 This will improve the layout of the scheme. Integrate it better within the wider area and

provide an opportunity to improve Queen Street.

3.11 It is proposed that a barrier access will be incorporated into the development to ensure that

there is no through access from Manchester Road to Queen Street, with the barrier sited in a

location to ensure that Queen Street only serves part of the development.



4.0 Planning Policy

4.1 Section 38(6) of the Planning and Compulsory Purchase Act 2004 requires all planning

applications to be determined in accordance with the development plan unless there are

material considerations which indicate otherwise. One such material consideration is the

National Planning Policy Framework “The Framework”. Paragraph 14 of the Framework, the

presumption in favour of sustainable development, asks decision-makers to approve

development proposals that accord with the development plan without delay.

4.2 For this planning application, the development plan comprises the saved policies of the

Tameside Unitary Development Plan (TUDP) (2004). Under the new legislation the “local

development framework” system a direction order in 2007 was issued by the Secretary of the

State saving a number of TUDP polices for a further three year period.

4.3 Other material considerations relevant to the determination of the application are:

• National Planning Policy Framework;

• Emerging Tameside Core Strategy;

• Employment Land Supplementary Planning Document;

• Tameside Strategic Land Availability Assessment 2014; and,

• Emerging Greater Manchester Spatial Framework.

Development Plan

Tameside Unitary Development Plan Adopted 2004 – Saved Policies beyond September 2007.

4.4 The saved policies of the TUDP that are considered relevant to the application proposals are

listed below.

4.5 Policy 1.5 Following the Principles of Sustainable Development - states that in

promoting sustainable development and quality of life, the need for economic development

and new homes will be balanced against the importance of protecting and enhancing the

environment. In particular, this will be sought by giving priority to the use of previously

developed land in the most efficient way including the re-use of empty or underused

buildings.


Planning Statement Britannia Mill, Manchester Road, Mossley 4.6 Policy E3 Established Employment Areas – states that in the established employment

areas, proposals for residential or mixed use development, such as the application site, will

not be permitted unless, after assessment of the following factors, it is considered that the

Borough’s housing requirements and the regeneration benefits of the development outweigh

the potential of the site in its present form for further employment use:

a) the quantity and type of employment sites and premises available in the area;

b) evidence of demand for employment sites and premises in the area;

c) the suitability of the site for further employment use in terms of size, physical

characteristics, access, traffic impact, and sensitivity of surrounding land uses; and,

d) the opportunity which may be presented for new forms of employment as part of a mixed

use scheme.

4.7 The application site is identified within the TUDP as an established employment area. The

policy tests and assessment within Policy E3 are discussed in section 5 of this statement.

The proposed development meets the assessment criteria of E3 and can therefore be

demonstrated that it can be used for an alternative use to employment.

4.8 Policy H4 Type, Size and Affordability of Dwellings – requires that the overall provision of

new housing in the Borough should incorporate a range of dwelling types, sizes and

affordability to meet the need of all sections of the community and to help create better

balanced communities for the future.

4.9 Policy H5 Open Space Provision – seeks to ensure that sufficient open space provision is

delivered as part of any new housing development.

4.10 Policy H6 Education and Community Facilities – this policy seeks to ensure that when

necessary contributions towards education and community facilities are delivered as part of

any new development.

4.11 Policy H7 Mixed Use and Density – states that the Council will encourage and permit the

development of schemes which contain mixed uses incorporating housing, either on parts of

a site or within individual buildings, such as flats above commercial uses. The Council

accepts that such schemes will be appropriate throughout the Borough but are particularly

encouraged within or adjoining town centres, in the vicinity of rail stations.

4.12 Policy H10 Details Design of Housing Developments – sets out the Council’s design

requirements for new housing developments.


Planning Statement Britannia Mill, Manchester Road, Mossley 4.13 Policy S3 New Retail Developments outside Town Centre – establishes the criteria

necessary to justify new large scale retail development outside of the boroughs Town

Centres.

4.14 A more detailed Retail Assessment has been conducted, which provides a more detailed

review of the requirements established within Policy S3, this separate retail assessment

should be read in conjunction with the other supporting application documents.

4.15 Policy T1 Highway Improvement and Traffic Management – states that traffic

management schemes and development schemes must be designed with the aims set out

within the policy such as:

• Encouraging the use of non-car modes;

• Assisting sustainable development;

• Improving the efficiency and attractiveness of public transport and the convenience and

safety of passengers, and,

• Improving road safety in residential areas.

4.16 Policy T10 Parking – This policy sets out the Councils approach to parking standards

across the borough. The policy states that new development will be subject to maximum

levels of parking provision.

4.17 Policy T14 Transport Assessments – requires development that has significant transport

implications to be accompanied by a Transport Assessment. A statement a Transport

Statement has been submitted to support the application proposals.

4.18 Policy C10 Development Affecting Archaeological Sites – state that where development

is proposed in areas of known or suspected archaeological importance, the Council will

ensure that provision is made for the prior investigation and evaluation of the site and

facilities are made available for suitable inspection during site preparation.

4.19 Policy N3 Nature Conservation Factors –states that when considering development

proposals which could have an impact on wildlife, plant life or geological features the Council

will wish to be satisfied that the potential benefits to nature conservation have been fully

taken into account in the design of the scheme.

4.20 Policy N4 Trees and Woodland – confirms that the Council will not permit the felling of

protected trees and woodland, or other trees of amenity value.


Planning Statement Britannia Mill, Manchester Road, Mossley 4.21 Policy N5 Trees within Development Sites – where the quality and location of existing

trees, whether individually, in groups or in woodlands are of significant value to the

appearance and amenity of a site will not permit development unless certain criteria can be

accommodated.

4.22 Policy MW11 Contaminated Land – establishes the Councils approach towards

Contaminated Land, and remediation conditions will be attached to any planning permission.

4.23 Policy MW12 Control of Pollution – states that planning permission will not be granted for

a development if its operation is likely to be a source of pollution (including noise pollution),

unless appropriate mitigation measures can be provided.

4.24 Policy U4 Flood Prevention – states that the Council will apply a risk based approach to the

assessment of possible flooding, and will take into account the Environment Agency’s most

recent Indicative Flood Plain Maps.

4.25 Policy U5 Energy Efficiency – states that the Council will encourage all development to

incorporate energy efficiency within the proposals, so far as is appropriate.

The National Planning Policy Framework

4.26 The Framework sets out the Governments planning policies and how these are expected to

be applied. It confirms at paragraph 6 that the purpose of the planning system is to contribute

to the achievement of sustainable development. It identifies at paragraph 7 that there are

three dimensions to sustainable development: economic, social and environmental. These

dimensions give rise to the need for the planning system to perform a number of roles:

• An economic role – contributing to building a strong, responsive and competitive

economy;

• A social role – supporting strong, vibrant and healthy communities;

• An environmental role – contributing to protecting and enhancing our natural and

built historic environment.

4.27 Paragraph 14 of the Framework sets out that at the heart of the Framework is a presumption

in favour of sustainable development, which should be seen as golden thread running

through both plan making and decision taking. For decision taking this means:

• Approving development proposals that accord with the development plan without

delay; and,



• Where the development plan is absent, silent or relevant policies are out-of-date,

granting permission unless:

i. Any adverse impacts of doing so would significantly and demonstrably

outweigh the benefits, when assessed against the policies in this Framework

taken as a whole; or

ii. Specific policies in this Framework indicate development should be

restricted.

4.28 Paragraph 17 of the Framework sets out 12 core land-use principles. A number of these are

directly relevant to this proposal, namely that planning should:

• Always seek to secure high quality design and a good standard of amenity for all

existing and future occupants of land and buildings;

• Contribute to conserving and enhancing the natural environment and reducing

pollution. Allocations of land for development should prefer land of lesser

environmental value, where consistent with other policies in this Framework;

• Encourage the effective use of land by reusing land that has been previously

developed (brownfield land), provided that it is not of high environmental value;

• Actively manage patterns of growth to make the fullest possible use of public

transport, walking and cycling, and focus significant development in locations which

are or can be made sustainable; and,

4.29 The specific policies and considerations that relate to the core land use principles are

outlined in the 13 Chapters of the Framework. The Chapters relevant to the application

proposals are:

• Chapter 1 Building a strong, competitive economy;

• Chapter 2 Ensuring the vitality of town centres;

• Chapter 4 Promoting Sustainable Transport;

• Chapter 6 Delivering a wide choice of high quality homes;

• Chapter 7 Requiring good design;

• Chapter 8 Promoting healthy communities;



• Chapter 10 Meeting the challenge of climate change, flooding and coastal

change;

• Chapter 11 Conserving and enhancing the natural environment; and,

• Chapter 12 Conserving and enhancing the historic environment.

4.30 Paragraph 22 of the Framework states that where there is no reasonable prospect of a site

being used for the allocated employment use, applications for alternative uses of land or

buildings should be treated on their merits having regard to market signals and the relative

need for different land uses to support sustainable communities.

4.31 Paragraph 27 states that when considering edge of centre or out of centre proposals,

preference should be given to accessible sites that are well connected to the town centre.

4.32 The Framework at paragraph 32 provides guidance on Highways issues and importantly

states that Development should only be prevented or refused on transport grounds where the

residual cumulative impacts of development are severe.

4.33 Paragraph 35 of the Framework promotes developments that generate significant movement

are located where the need to travel will be minimised and the use of sustainable transport

modes can be maximised.

4.34 When considering parking standards for new residential and non-residential development the

Framework is clear at paragraph 39 that local planning authorities should take into account:

• The accessibility of the development;

• The type, mix and use of the development; and,

• The availability of and opportunities for public transport.

4.35 The framework in section 6 seeks to establish housing growth and significantly boost housing

growth. This is demonstrated at paragraphs 47 and 49.

Emerging Local Plan

4.36 Emerging Tameside Core Strategy Development Plan Document Preferred Options (2013)

4.37 The emerging Tameside Core Strategy is only at the preferred options stage of its

preparation. The consultation exercise for the preferred options closed on the 18th February



2013. Since the closure of the consultation there has been no further preparation of the Core

Strategy. The document carries very limited to no weight in the decision making process.

Employment Land Supplementary Planning Development (January 2009)

4.38 The Employment Land SPD expands on the guidance for local Planning Policy E3 and in

particular the policy approach to the retention of release of employment sites.

4.39 The SPD states that a principal objective of both policy E3 and the SPD is to ensure a

rational and consistent approach is taken to the redevelopment of employment sites, but this

needs to be undertaken in an open and transparent way to maintain a balance in favour of

protection.

4.40 The SPD expands upon the redevelopment for other uses and can be allowed on poor

quality sites that have become unsuitable or unviable for employment use, in order to realise

their potential regeneration benefits.

4.41 The SPD expands upon the requirement within the Policy E3 criteria such as Land-Use

Issues, Alternative Sites and Demand.

Employment Land Review Consultation Draft (December 2013)

4.42 The employment land review in section 5 confirms that the supply of industrial

properties/units in Tameside is much greater that the demand, which can be attributed to the

lack of profit that developers generate from new builds in the current economic

circumstances. The 2013 report in table 5.2 demonstrates that Tameside has approximately

90,661 of available industrial floor space.

4.43 The review concludes that there is a significant amount of existing older stock that is no

longer suitable for modern employment requirements because the structures are too

inflexible for adaption.

Tameside Employment Land Study (2009)

4.44 This documents supports the Employment Land Review, the document looks at the supply

and take up of employment land across the borough. The study provides an assessment of

the sites included within the supply. The study demonstrates that a large proportion of the

site forming the land supply in 2009 are in private ownership and that a number of

landowners are seek to obtain residential planning consent.



Tameside Strategic Land Availability Assessment (2014)

4.45 This document provides an update on the Councils Housing Land Supply position as at

2014. Since the revocation and abolition of the Regional Spatial Strategy targets, the Council

as part of the emerging Core Strategy preparation have revised there objectively assessed

need for housing.

4.46 The Councils requirement is now 11,000 net additional dwelling over a 17 year plan period

between 2014-2029. The Council within the report state that on the revised figures can

demonstrate a 5.66 year housing land supply. The report also demonstrates that over the

plan period the Council will can only identify 8,931 dwelling over the next 15 years, leaving a

undersupply of housing land to meet the revised housing requirements.

4.47 The Council within the report also demonstrated that to meet future housing need the Council

will need to conduct an assessment of sites within the Green Belt for potential release in

order to meet the overall housing requirement of 11,000.

Emerging Greater Manchester Spatial Framework Issues and Options (November 2015)

4.48 The emerging Greater Manchester Spatial Framework (GMSF) is a strategic growth driver

amongst the 10 Greater Manchester Local Authorities. The GMSF will seek to provide

regional housing and employment targets as a combined strategy across the 10 AGMA Local

authorities. The GMSF is only at the very early stages of its preparation with the consultation

exercise on the issues and options only just starting in November 2015. Therefore, as the

GMSF is at such an early stage of its preparation it cannot be given any weight in the

decision making process.



5.0 Planning Appraisal

5.1 This section of the Planning Statement considers the application proposals against the

Development Plan and other material considerations. The assessment will therefore consider

the following:

• the basis for decision taking;

• the principle of development;

o Redevelopment of employment land

o Retail assessment; and,

o The presumption in favour of sustainable development.

• Other Material Considerations:

o Accessibility and traffic;

o Design;

o Ecology;

o Flood risk and drainage;

o Noise

o Ground conditions; and,

o Archaeology

Basis for Decision Taking

5.2 Section 38(6) of the Planning and Compulsory Purchase Act 2004 requires all planning

applications to be determined in accordance with the development plan unless there are

material considerations, which indicate otherwise. Paragraph 14 of the Framework, the

presumption in favour of sustainable development, asks decision-makers to approve

development proposals that accord with the development plan without delay.

5.3 In this case, the development plan consists of the saved policies of the Tameside Unitary

Development Plan (TUDP). The TUDP was adopted in 2004 with some of its policies saved

by the Secretary of State in 2007. The TUDP plan period only extends to 2011 with its



polices on housing growth based upon the previous RSS growth figure, which have now

been revoked.

5.4 In view of paragraph 215 of the Framework, each policy within the TUDP will need to be

considered on its merits and its consistency with the Framework.

5.5 The emerging Local Plan is currently at the Core Strategy preferred options consultation

stage of the preparation process. The emerging local plan is at an early stage in its

preparation and does not carry any weight in the decision taking process.

5.6 The basis for decision taking is therefore the policies contained with the TUDP. However, the

Framework is also a key material consideration in the decision-taking process.

Principle of Development

5.7 The proposed development comprises of the demolition of Britannia Mill and the

redevelopment of the site for a mixed use development comprising of residential and retail

development in an establish employment area (Policy E3 TUDP).

5.8 To establish the principle of development it is important to demonstrate that alternative uses

can be accommodate on site through meeting the policy tests within TUDP Policy E3.

5.9 It is also necessary to demonstrate that there are no sequentially preferable sites for the

proposed development and that the application proposals meet the presumption in favour of

sustainable development in accordance with paragraph 14 of the Framework.

TUDP Policy E3

5.10 The application site is identified within TUDP Policy E3 as an established employment area.

5.11 Policy E3 states that “Proposals for residential or mixed use development in ‘established

employment areas’ will not be permitted unless, after assessment of the following factors, it

is considered that the Borough’s housing requirements and the regeneration benefits of the

development outweigh the potential of the site in its present form for further employment use:

A) the quantity and type of employment sites and premises available in the area, and;

B) Evidence of demand for employment sites and premises in the area, and

C)The suitability of the site for further employment use in terms of size, physical,

characteristics, access, traffic impact, and sensitivity of surrounding land uses, and;



D) The opportunity which may be presented for new forms of employment as part of a mixed

use scheme. “

5.12 The application proposals involve the loss of the existing Britannia Mill for a mixed use

development. Therefore to establish the principle of development we need to demonstrate

that the above criteria are met. Each criterion will be discussed in turn.

A) The quantity and type of employment sites and premises in the area.

5.13 Tameside Borough Council (TBC) as demonstrated within the Employment Land Review

(ELR) (2013) has an existing over-supply of industrial buildings throughout the borough,

demonstrating that the borough has a surplus of existing industrial buildings. In addition to

this, Mossley, in the Tameside Employment Land Study (ELS) (2009) which is the latest

study conducted by TBC, was considered not to be a prime location for external industries to

locate due to its distance from the regional motorway network, with the industrial property

available only of a Grade B or Grade C quality. Therefore there is a surplus of industrial sites

across the borough, with Mossley having a number of medium to low grade sites.

5.14 Mossley, however, does have a number of industrial units of good quality located along Mill

Street to the south of the site, which are currently active and in occupation, notwithstanding;

there is still a large proportion of vacant industrial buildings in the Mossley area.

5.15 The type and quality of available units in Mossley is low, with all good quality units currently

in full occupation. There is limited demand/take up of the remaining low quality stock in

Mossley, as demonstrated by the lack of interested parties in the application site. This is

primarily due to the viability of renovating the existing units and the existing suitability of units

for employment use.

5.16 Therefore, the loss of the Britannia MIll for an alternative use would not have a detrimental

impact upon the quantity and type of industrial units available within Mossley. The loss of the

building would not impact upon the quantity and quality of offer for employment uses.

B) Evidence of demand for employment sites and premises in the area.

5.17 A marketing report has been prepared by Rodger Hannah & Co. to support the planning

application in response to previous comments raised by Tameside Council officers in relation

to the marketing of the site. The report establishes that in the last 4 years there have been no

viable or serious offers for Britannia Mill as an employment site.

5.18 The site has been marketed since 2011. There was an initial interest in the site in 2011 for

rental offers only. However these initial offers fell significantly short of a reasonable market



rent. Following the initial interests in the site a number of interested parties undertook site

visits and noted the existing building poor state of repair.

5.19 In addition to the initial rental offers received in 2011 there were two formal offers to

purchase the site, one was well below the considered asking price, and the other was from a

supermarket who wished to purchase the site to gained access to the ‘New Britannia Mill

unit’ to the rear of the application site.

5.20 Since 2012 there has been little interest in the site being brought back into employment use.

There was interest expressed in 2013 for a non-employment use. The last formal offer

received was in June 2014 to redevelop the site for residential use. However this has not

been progressed.

5.21 Full details of the marketing can be found within the submitted Marketing Report, however it

has been clearly demonstrated that there is limited to no demand for the site to be brought

back into employment use. Therefore alternative mixed uses can be considered appropriate.

C) The suitability of the site for further employment use in terms of size, physical,

characteristics, access, traffic impact, and sensitivity of surrounding land uses.

5.22 Britannia Mill is in a poor condition and it is proposed that the building will be demolished as

part of the development proposals. The existing building is no longer structurally sound with

the front elevation/façade structurally unsafe and impacting upon the remaining structure of

the building.

5.23 The Mill was previously used to manufacture rope and the layout out of the Mill is for that

purpose. The internal condition would require significant refurbishment and structural works

would be required if it were to be used for general industrial or offices uses.

5.24 The size of the building and its associated accesses restrict the property from being used for

a B8 Warehouse and Distribution employment use, which further limits its market.

5.25 The site would not be suitable for more intensive industrial uses due to its proximity to local

residents.

5.26 Therefore it considered that the building has very limited suitability for modern employment

uses.

D) The opportunity which may be presented for new forms of employment as part of a mixed

use scheme.


Planning Statement Britannia Mill, Manchester Road, Mossley 5.27 The proposed redevelopment is seeking to provide an element of retail development, which

will provide alternative employment opportunities for local residents. The proposed retail

element will mean the retention of an employment generating use on site, avoiding the

complete loss of employment on site.

5.28 The application proposals therefore meet the policy test within TUDP Policy E3 and are in

accordance with the development plan.

Retail Assessment

5.29 A Retail Assessment has been conducted by Nexus Planning which runs parallel to this

planning statement. As the proposed retail unit is up to 750sqm below the 2,500sqm

threshold set in national planning policy, no impact assessment has been undertaken as part

of the retail assessment. However, Nexus has undertaken a health check of Mossley local

centre and the parade of shops south of the proposal site on Manchester Road, Bottom

Mossley in order to place the proposal in context.

5.30 The Retail Assessment demonstrates that there are no suitable sites in sequentially

preferable locations within Bottom and Top Mossley for the proposed retail unit, therefore the

proposed development is in accordance with paragraph 24 of the Framework.

5.31 The principle of retail development on the application site is therefore considered tobe

accepted.

Presumption in favour of sustainable Development

5.32 The proposed mixed use development for retail and residential development is acceptable in

principle. The proposed development is therefore in accordance with the development plan,

and therefore meets the presumption in favour of sustainable development unless there are

other material considerations that indicate otherwise.

Other Material Considerations

Accessibility and Traffic

5.33 TUDP Policy T1 and paragraph 29 of the Framework seeks to ensure that convenient access

for pedestrians, disabled and other people with limited or impaired mobility is created within

new development and that new development will also be required to incorporate measures to

ensure that safety remains a priority for future residents and that there are opportunities for

the use of sustainable transport modes and that any new development will provide safe and

sustainable access.



Opportunities for the use of sustainable transport modes

5.34 It has been demonstrated that the site is in a highly sustainable location. The site is located

on the 343 and 354 bus routes, which provides public transport links to other destinations as

well as, Mossely train station, which is located immediately adjacent to the application site

and provides railway links to other key destinations such as Ashton-under-Lyne and

Manchester.

5.35 The proposed development is well served by modes of public transport in accordance with

TUDP Policy T1 and Paragraph 29 of the Framework.

Safe and sustainable access

5.36 An existing pedestrian footway runs along Manchester Road to the front of the site providing

safe access along the Manchester Road frontage. It is proposed that a new footway will be

provided into the site to ensure there are safe pedestrian movements to all.

5.37 Access Drawing Ref: 1136 – F01 Rev. D demonstrates that the necessary visibility splays

can be achieved at the Manchester Road access junction to ensure safe access and egress.

The application proposals show that the development can be accessed appropriately by the

existing access to rear via Queen Street and from the proposed new access off Manchester

Road.

5.38 It is anticipated that improvements may be requested by Tameside Highway Officers in

relation to Queen Street. The proposed development would allow this opportunity to occur,

however details have not been requested or agreed at this stage. It is expected any potential

improvements to Queen Street will be agreed of at the reserved matters stage.

5.39 Despite, the proposed two access points to the development site from Manchester Road and

Queen Street, it is understood that if required the proposed Manchester Road access could

accommodate all of the proposed development, whilst ensuring a safe access and egress.

5.40 The site is in a highly sustainable location, and as demonstrated earlier in this statement,

there are several local facilities that are accessible directly by foot, reducing the need to

travel long distances.

Impact on the Highway Network

5.41 TUDP Policy T14 states that development likely to be significant generators of travel will

require a detailed transport assessment to be submitted. A Transport Statement (TS) has

been prepared by Croft Transport Solutions and accompanies this planning statement.


Planning Statement Britannia Mill, Manchester Road, Mossley 5.42 Section 4 of the Framework also require proposals for new development to demonstrate that

there will be no severe impact upon the existing highway network as a result of the proposed

development and that mitigation measures are incorporated when necessary.

5.43 The TS submitted provides technical information and traffic modelling to demonstrate the

development will have a minimal impact upon the existing highway network.

5.44 In relation to the potential impact upon Queen Street, the TS confirms that including the

provision for 38 apartments is forecast to result in just 1 additional vehicle every 5 minutes

even during the peak period. Therefore the proposed development will have a minimal

impact on the operation of Queen Street. The TS also demonstrates that all residential traffic

will utilise the proposed access onto Manchester Road resulting in a minimal impact upon the

existing operation of Manchester Road.

5.45 The TS further considers the potential impact of the proposed retail/convenience store, which

is proposed to be accessed via Manchester Road. The potential impact upon the existing

junctions of Manchester Road/Stamford Road is predicted to experience similar levels of

operation under the proposed development scenario. Therefore the impact of the

development proposals is considered to be appropriate.

5.46 The servicing arrangement for the proposed retail store will create minimal conflict with

existing users and future customer vehicles. The servicing will be targeted to occur during

periods of lower background traffic flows on the surrounding highway network and will seek

to avoid busy convenience store trading periods.

5.47 The proposed development therefore is in accordance with TUDP Policy T1, T14 and

paragraph 27 of the Framework.

Parking

5.48 TUDP Policy T10 establishes Tameside Council parking standards for the borough. The

proposed development is for an outline planning application of approximately 750 sqm and

approximately 62 apartments. The proposed development will provide up to 108 spaces for

residents and up to 28 dedicated spaces for retails users. The proposed indicative provision

is considered to be in accordance with TUDP Policy T10.

5.49 The proposed development is therefore in compliance with the development plan in relation

to transport matters.



Design

5.50 The application proposals are for outline planning permission with all matters reserved other

than access. Therefore the details of materials, final appearance and layout are to be agreed

at the reserved matters stage. As part of this application, a Design and Access Statement

has been prepared by Broadway Malyan which provides illustrative details of the potential

design.

5.51 It is anticipated that any materials or design of form and layout will be agreed at reserved

matters stage. Therefore the proposed development is in accordance with section 7 of the

Framework.

Ecology

5.52 TUDP Policies N3 and N4 seek to ensure that any impact to habitat and wildlife is fully taken

into account in the design of the scheme and that when necessary appropriate mitigation

measures are implemented. The policies also request that developers provide an ecological

appraisal as part of any new development. An extended Phase 1 Habitat survey has been

prepared by The Appleton Group.

5.53 The habitat survey demonstrates that there is no locally uncommon plant species recorded

on site, and it is recommended that areas of semi-natural woodland and habitats below the

break of slope should be retained where possible.

5.54 The proposed development is therefore in accordance with TUDP Policy N4.

Bats

5.55 In accordance with TUDP Policy N3 a separate Bat Survey Report was prepared by the

Appleton Group and accompanies this statement. The survey report confirms that the

Britannia Mill is unsuitable for loft dwelling bats such as the Brown Long Eared Bat. It was

considered that the surrounding habitat is potentially capable of meeting the foraging

requirement for this type of Bat species. However, the demolition of the building is highly

unlikely to have an adverse impact upon this species of bat. The surrounding habitat was

identified as being of value to the crevice dwelling bat species.

5.56 The Bat Survey however, concludes that the value of the building relative to bats is classified

as low-moderate in accordance with the Bat Conservation Bat Survey: Good Practice

Guidelines. Further dusk time survey work was conducted on the site to confirm the

presence of Bats, following this survey it was confirmed that there was a Bat Roost and



appropriate mitigation measures would be necessary and the use of the building by Bats was

of low level conservation value.

5.57 The proposed mitigation measures include the capture/exclusion of the Bat Roost by

licenced ecologist and a new roost creation; therefore there are appropriate mitigation

measures that can be accommodated on site to protect the Bat Species. The proposed

development is therefore in accordance with TUDP Policy N3.

Other Protected Species

5.58 The Habitat Survey confirmed there was no evidence to demonstrate that the site was used

by Badgers, Water Voles, Otters and Great Crest Newts on site. In regard to Birds, the

extended Phase 1 Habitat Survey demonstrates that to prevent any harm to nesting birds

that all vegetation clearance is conducted between the months of August and February.

5.59 The proposed development is therefore in accordance with the TUDP N3 and N4 and is

acceptable in relation to ecological matters.

Flood Risk and Drainage

5.60 TUDP Policy U4 and Paragraph 103 of the Framework prevents new development in a

location that is within an area that has an unacceptable risk of flooding and any new

development that will increase the existing risk of flooding to the surrounding area.

5.61 When an application site is located within an area at risk of flooding, it is important for the

proposed development to incorporate appropriate attenuation or mitigation measures, and to

whenever possible reduce the risk of flooding.

5.62 The application site in accordance with the Environment Agency Flood Risk Map is located

within Flood Zone 1 which is considered to be an area of low flood risk, with residential

development considered to be an appropriate use in principle. A Flood Risk Assessment

accompanies the application and has been undertaken by Betts Associates.

5.63 The application site is a brownfield site with existing hard standing and limited attenuation

and infiltration on site and is located approximately 50n south west of the River Tame. The

re-development of the site from its existing condition to the proposed development will allow

the applicant to provide improved attenuation measures on site which will have a positive

impact upon the surrounding area, and will reduce the risk of flooding on site.

5.64 The proposed development is for an outline planning application, with full details of an

appropriate mitigation drainage strategy to be provided at the reserved matters stage;



however it is anticipated that the proposed development will not increase the risk of flooding

on or in the vicinity of the site in accordance emerging TUDP U4.

5.65 The application proposals are in compliance with TUDP U4 and paragraph 103 of the

Framework in relation to Flood Risk and Drainage matters.

Noise Pollution

5.66 TUDP MW12 will not grant planning permission if noise pollution will cause significant harm

to the amenity of surrounding areas. A noise assessment has been prepared by AEC Ltd to

demonstrate the potential noise impact.

5.67 The application site is a current employment site, with the previous use being a rope

manufacturer. Therefore the proposed development will be a reduction in noise levels from

the existing use and an enhancement to the existing use.

5.68 The submitted Noise Assessment demonstrates that the proposed development can

incorporate mitigation measures to ensure that there is no impact upon the amenity of

surrounding residents and business in relation to Noise.

5.69 The proposed development would not therefore impact upon the amenity of existing or future

residents in relation to noise pollution, complying with development plan policy TUDP MW12.

Ground conditions

5.70 TUDP Policy MW11 will only permit new development proposals that would likely contribute

to an increase in land contamination if mitigation measures can be adequately incorporated.

A Phase 1 Site Investigation Report has been prepared by WSP.

5.71 The Phase 1 Site Investigation report demonstrates that appropriate mitigation measures can

be conducted to ensure that there would be no increase harm in relation to land

contamination.

5.72 The proposed development is therefore in accordance TUDP Policy MW11 and is therefore

acceptable in relation to land contamination matters.

Archaeology

5.73 TUDP Policy C10 states that where development is proposed in areas of suspected

archaeological importance provision for investigation and evaluation of site should be

conducted. A desk-top archaeological survey has been conducted by Oxford Archaeology.


Planning Statement Britannia Mill, Manchester Road, Mossley 5.74 The survey demonstrates that the Britannia Mill building has no archaeological importance.

The proposed development is in accordance with TUDP C10 and is appropriate in respect of

archaeological matters.

Summary

5.75 It has been demonstrated that the principle of the proposed mixed use development of

residential and retail on the application site is acceptable and is consistent with the

development plan. The site is also in a sustainable location.

5.76 Having considered the proposals in the context of the relevant development plan policies and

the provisions of the Framework, sufficient supporting information has been submitted to

demonstrate that there are no technical or site specific reasons why residential development

cannot be accommodated at the application site.



6.0 Conclusions

6.1 In the light of this Planning Statement it is considered that:

• Britannia Mill has been vacant for a number of years and has been marketed for the

last 4 years with no viable interest in the site for employment use.

• The application site is in a sustainable location;

• There is a significant surplus of industrial sites throughout the Borough.

• The principle of a mixed use development comprising retail and residential uses on

site is considered acceptable;

• The proposed access is considered acceptable in highways terms and the proposed

development does not have a severe impact upon the existing highway network;

and,

• There are no development management policies that would restrict the development

from occurring on site.

6.2 The proposals would be of significant benefit to the Mossley community. They will bring

about the redevelopment and significant investment in an increasingly derelict site. They will

deliver new homes, including 3 bed properties and new commercial space and jobs.

6.3 The proposals through the delivery of high quality design will contribute to the character of

Mossley in a very sustainable location.

6.4 It is therefore submitted that the application can be positively considered by the Local

Planning Authority.



Britannia Mill, Mossley

Planning Statement

on behalf of English Braids Ltd

December 2015


Documents

Britannia Mill, Manchester Road, Mossley Planning Statementplandocs.tameside.gov.uk/anitepublicdocs/00220467.pdf · Britannia Mill, Manchester Road, Mossley Planning Statement