Blackburn Cathedral Quarter
Supplementary Planning
Document
Part of the Blackburn with Darwen
Local Development Framework
September
2009
Supported by
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
3
Contents
Introduction
0.1 Purpose of the SPD
0.2 Site Location
0.3 Adoption Process
0.4 How to use the Guidance
PART 1 - Planning Framework
1.1 The Vision for Blackburn Cathedral Quarter
1.2 Area Context and Constraints
Special interest of the Cathedral Quarter
Historic development
Heritage
Archaeological significance
Physical characteristics
Movement
Sustainability issues
1.3 Stategic and Local Policy Context
The Role of the SPD
Regeneration context
Relationship to other initiatives
PART 2 – Development Guide
2.1 Oveview
2.2 Development Zones
Cathedral Precinct
Station Interchange
Jubilee Street
2.3 Land Use Typologies
Cathedral Precinct
Cathedral Gateway
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PART 3 – Design Guide
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3.1 Overview
3.2 Design Guidance
Sense of place
Views, vistas & enclosure
Public realm
Design quality
Historic environment
Sustainable design
Safeguarding amenity
Passive security
Movment & car parking
Biodiversity & green infrastructure
3.3 Jubilee Street Character Area
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PART 4 - Delivery and Implementation
4.1 Introduction
4.2 Key Projects - Sequencing and Phasing
4.3 The Funding of Projects
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PART 5 - The Way Forward and Form of Planning Applications for
Development Projects
46
5.1 Introduction
46
5.2 Design Statement
46
PART 6 - Contacts and Further Information
47
Glossary
51
Appendix 1:
Appendix 2:
Appendix 3:
Appendix 4:
Statement of Community Involvement
Summary of Changes from Sustainability Appraisal
Spatial Planning, Documents and Strategies
Principal Planning Policies of the Blackburn with
Darwen Borough Plan (April 2002)
July 2009
4
Blackburn Cathedral Quarter Supplementary Planning Document
Introduction
0.1
Purpose of the SPD
0.1.1
The Cathedral Quarter is recognised for its significant
architectural and historic importance. Most specifically it is
home to two listed landmarks - Blackburn Cathedral and
Blackburn railway station, which not only define a special
meeting place and gateway to the town, but together form a
unique area in the heart of Blackburn.
0.1.2
Notwithstanding the Cathedral Quarter’s townscape quality
and historic importance it is considered that it is currently
underperforming economically, socially and environmentally.
A sense of lifelessness persists due to the significant under
use of buildings and spaces and the Cathedral Quarter is an as yet
unrealised opportunity.
0.1.3
In recognition of the development potential of the area,
Blackburn Cathedral produced its own precinct masterplan,
which has informed a mixed-use planning application and
consent process. This consent has become the catalyst for the
wider regeneration of the Cathedral Precinct and environs, but
development has yet to be realised.
0.1.4
It is within this context that Blackburn with Darwen Borough
Council (BwDBC) wish to build upon the foundations of the
Cathedral Precinct Masterplan to realise the revitalisation of the
Cathedral Quarter by engaging with wider development interests
across a greater physical area. BwDBC are currently working in
partnership with Maple Grove Developments Ltd, but the
principles set out in this SPD will apply to any developer or
development that come forward in the area.
0.1.5
The purpose of the Blackburn Cathedral Quarter
Supplementary Planning Document (SPD) is to ensure the
delivery of imaginative, well designed, and sustainable mixed
use development, which is sensitive to the unique
setting of Blackburn Cathedral. The SPD communicates the
Council’s aspirations for the area and will provide an efficient
Figure 1. Blackburn in Context
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
and transparent tool that offers clarity for the Council,
developers, stakeholders and the people of Blackburn, by :
•
•
Formulating a comprehensive and robust spatial vision
for the area based on existing planning policies;
Identifying key development opportunities within this
strategically significant area of the town centre; and
Providing a design framework for the determination of
future planning applications within this historic and
architecturally sensitive area.
0.2.2
The Cathedral Quarter is situated in the southern part of the town
centre and is dominated by the Cathedral and the wider
Cathedral Precinct (figure 2). The site’s northern boundary is
defined by Church Street beyond which lies the town’s main
retail core. The southern and western boundaries of the area
are formed by George Street and Darwen Street, whilst to the
east the site is bounded by the railway line, Blackburn
Railway Station and the Boulevard Bus Station. The area
thus functions as a strategic public transport hub, serving as
an important gateway to the town.
ad
Ro
The historic town of Blackburn is situated at the very western
edge of the Pennines within a bowl formed by surrounding
hills. The town is the principal centre of the Borough of
Blackburn with Darwen, sharing an urban area to the south
with the town of Darwen. Preston is approximately 10 miles
to the west and the urban area of Hyndburn (Oswaldtwistle,
Church and Accrington) is 5 miles to the east (figure 1).
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0.2.1
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Site Location
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0.2.3
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The boundaries have been chosen to include the whole of the
Blackburn Cathedral Precinct and land and property in its vicinity
in order to ensure:
Figure 2. Blackburn Cathedral Quarter
•
•
The delivery of the Cathedral Precinct Masterplan,
including detailed plans prepared for Blackburn Cathedral
Developments for new Cathedral-related accommodation, 0.3.3
including a library, refectory, social and community
facilities associated with the refurbishment of the crypt,
Cathedral offices and residential accommodation for staff,
as well as additional residential and commerical uses.
The development of several unused or underused sites in
the Cathedral’s vicinity for appropriate uses which
complement the area’s unique setting and its proximity to
the town’s main shopping centre and public transport
facilities.
•
The creation of a modern transport interchange in the
Boulevard adjacent to the Railway Station.
•
That other potential development opportunities in the
Cathedral Quarter area can be identified and in due
course realised.
0.3
Adoption Process
0.3.1
The Blackburn Cathedral Quarter SPD supports and supplements
the policies of the Blackburn with Darwen Borough Local Plan. It
forms part of the Local Development Framework (LDF) for
Blackburn with Darwen Borough Council. More detail on the
relevant local plan policies is given in section 1.3.7 and in
Appendix 4.
0.3.2
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
6
The process towards adoption of the SPD has required
compliance with all statutory procedures in line with the
Planning and Compulsory Purchase Act 2004. This has included
the preparation of a Sustainability Appraisal (SA) and the SPD has
been subject to a period of statutory consultation. A statement
of community involvement which details this process is set out in
Appendix 1, along with a table which details how the SPD has
responded to the responses received during the consultation
period.
To comply with Article 6(3) and (4) of the ‘Habitats’ Directive
(92/43/EEC), a Habitats Regulations Assessment (HRA) of the SPD
has also been carried out. The SA and HRA reports which are
available as standalone reports detail the process by which the
SPD has been appraised and should therefore be read in
conjunction with the Cathedral Quarter SPD, particularly to
understand how these processes have informed the preparation
of the SPD. A summary of changes to the SPD as a result of the
SA is set out in Appendix 2.
0.4
How to use the guidance
0.4.1
Part 1 sets the context to the Cathedral Quarter and the
SPD. It describes the overall purpose of the SPD in terms of
the vision for the Cathedral Quarter and how the realisation
of the vision relates to the existing planning framework.
0.4.2
Part 2 translates the vision and objectives for the Cathedral
Quarter into a series of development zones and land use
typologies, forming a strategic development guide for the
Cathedral Quarter.
0.4.3
Part 3 provides overarching design guidance for all proposals
within the Cathedral Quarter.
Blackburn Cathedral Quarter Supplementary Planning Document
PART 1 - Planning Framework
1.1
The Vision for Blackburn Cathedral Quarter
1.1.1
The vision defines the aspirations and drivers for the
development of the Cathedral Quarter. It embodies what the
Council and its partners wish the area to become in the
future and the essential components that will be required to
achieve this outcome. All development must demonstrate
that it contributes to this vision:
”Our vision is to create a vibrant mixed use quarter that has a
true sense of place and is a source of civic pride.
Formed around the key landmarks of the railway station and
cathedral, the area will be enhanced as an important
gateway and meeting point in the town centre by distinctive
contemporary development that improves the quality of
buildings and spaces within the conservation area and
provides the setting for new offices, housing, hotels, shops
and leisure uses.
The success of the Cathedral Quarter will be to create a
vibrant and attractive area that acts as a stimulus to the long
term regeneration of the town centre.”
1.1.2
Realising this vision is critical to the creation of a diverse and
interesting urban quarter that will provide the catalyst for the
revitalisation of the wider town centre. This is better defined
by the following set of objectives that are the key drivers for
the guidance and advice presented in this SPD and which all
proposals must respond to positively:
1)
2)
3)
Create a unique destination with the Cathedral at its
heart.
Provide a diverse range of land uses that enhance the
vibrancy of the area and promote social and community
cohesion and reinforce the role of the area within
Blackburn Town Centre.
Stimulate the regeneration of underused land and
July 2009
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Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
4)
5)
6)
1.2
Typical Cathedral Quarter materials
Typical corner treatment
Vertical emphasis of elevations
Enclosure of views
buildings to create distinctive opportunities for high
quality development.
Ensure built proposals in the Cathedral Quarter
preserve and enhance the overall character of the
conservation area and the setting of the Cathedral.
Exploit the fact that the area performs a strategic
transport function by defining a major gateway and
arrival point that improves the overall experience of
Blackburn Town Centre.
Enhance the function and quality of the existing open
space network and create opportunities for new open
spaces.
Area Context and Constraints
Special interest of the Cathedral Quarter
1.2.1
The special interest of the Cathedral Quarter is derived
predominantly from the surviving collection of fine nineteenth
and twentieth century buildings set around the Cathedral
Church of St Mary the Virgin and the site of Blackburn’s
medieval market place.
1.2.2
The Cathedral is a complex building encapsulating Georgian
references to the medieval period and modern references to
the Gothic idiom, but the consistent use of ashlarred gritstone
ensures that the building and its fittings read together as a
single work of art. Gritstone as a material, along with red
brick, features prevalently within the quarter and is used in
the majority of other listed and notable buildings.
1.2.3
The precinct grounds of the Cathedral occupy a significant
portion of land within the Quarter and provide an important area
of green space within the town centre. Clusters of mature trees
contribute to the visual quality of the Precinct.
1.2.4
The whole of the area covered by the SPD falls within a
Conservation Area. The part of the site which encompasses
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
9
the Cathedral and its grounds falls within the Cathedral
Conservation Area and the area of land to the south of the
site beyond Jubilee Street and that to the east of The
Boulevard falls within the Darwen Street Conservation Area.
Conservation Area Appraisals (CAA) have been produced for each
conservation area, and readers are advised to consult these CAAs
for a detailed analysis of the underlying qualities of these areas.
1.2.5
The Cathedral is the centre of a diocese and the only
Anglican cathedral in Lancashire. The building is the focus of
an extremely active religious life and the Cathedral also plays
a significant part in the life of the wider community, partly
though its functions and partly through its physical presence
as the centre of the town of Blackburn; the tower and spire of
the Cathedral are visible throughout the area as well as from
strategic vantage points within the wider town centre (figure 4).
1.2.6
The Cathedral’s Conservation Plan asserts the good overall
state of repair of the Cathedral and the need to ensure that
the building remains in good condition, with an adequate flow
of resources and proper control systems in place. This
document suggested the potential of built development to
secure such resources, as well as contributing to life of the
Cathedral and the townscape of Blackburn. The
Conservation Plan was used to inform the preparation of the
Cathedral Precinct Masterplan, which will form the basis for
development in the precinct.
Historic development
1.2.7
Figure 3. Blackburn Town Centre 1939
The Cathedral Quarter embodies the earliest origins of
Blackburn and the present street pattern of Darwen Street
and Church Street can be traced to at least the early
medieval period if not further to Roman times. The
commercial heart of the early town was the market place at
the junction of these ancient streets which was marked by a
medieval cross. It was also in close proximity to St Mary’s
Church, the spiritual heart of the town.
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Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
1.2.8
The original St. Mary’s Church stood to the far north of the
existing Cathedral directly behind the frontages along Church
Street. In the early 18th Century, this church was demolished
following an Act of Parliament in 1819 which provided for a new
building to meet the growing needs of the town. During this
period the River Blakewater was also straightened to its present
course, extending the site for the new parish church and burial
ground. The foundation stone for the new St Mary’s church was
laid in 1820 and now within the nave is that of the present
Cathedral.
1.2.9
The low lying ground immediately east of the parish church
and the river took shape following the construction of the
railway line, which opened in 1846. Railway Road became an
important approach to the town and the triangle of land
between the river and the station became Railway Square. The
character of this area was also affected when the Blakewater,
which runs under the northern end of railway Road, was
culverted to form The Boulevard formerly known as the
Esplanade.
1.2.12 For the Cathedral Quarter itself the biggest impact was the
creation of the diocese of Blackburn in 1926 and the
elevation of St. Mary’s Church to cathedral status. North
and south transepts were added to the building from the
period to 1961 and the Cathedral largely finished by 1983. A
Council desire to open up views of the Cathedral led to the
demolition of the eastern frontage of Darwen Street in front of
the Cathedral and the Picture Theatre towards the south of
the Cathedral was also demolished in the early 1980s.
Heritage
1.2.10 Development over the mid to latter part of the nineteenth
century consolidated the street network and immediate
townscape of the Cathedral Quarter to define a dense
arrangement of streets and a diverse range of commercial,
residential, industrial and cultural uses. By 1894 a pattern
had been set, which remained largely unchanged until the
late 1960s.
1.2.11 The modern period saw significant change to the character of
the town. Although the immediate vicinity of the Cathedral
has largely endured, whole quarters of streets and buildings
were demolished and redeveloped to make way for larger
single use commercial developments, most notably
Blackburn’s Shopping Centre ‘The Mall’ located north of
Church Street and the Morrison’s development to the east.
1.2.13 Under the Planning (Listed Buildings and Conservation
Areas) Act 1990 buildings of architectural or historic interest
listed by the Secretary of State require listed building consent
for demolition, alteration or extension works. Consent is also
required for alterations to any object or structure which lies
within the grounds or ‘curtilage’ of a listed building and which
was constructed before 1 July 1948.
1.2.14 The area covered by the SPD includes a number of Grade II*
and Grade II listed buildings and structures that will require
special consideration as part of future development
proposals. Grade II* buildings are particularly significant
buildings of more than local interest and Grade II are of
special architectural or historic interest. It is important to note
that altering a listed building without consent is a criminal
offence.
Grade II*:
•
Blackburn Cathedral (Cathedral Church of St. Mary
the Virgin).
Grade II:
•
Railings, piers, lampholders and statue at east end of
Cathedral churchyard.
•
Cathedral Gateway, top of Church Street.
•
Old Bank, Darwen Street.
Blackburn Cathedral Quarter Supplementary Planning Document
•
•
The Pavilions (20, 28, 30 and 36 Church Street).
Railway Road (east side), Blackburn Railway Station.
Archaeological significance
1.2.15 There are no Scheduled Ancient Monuments in the Cathedral
Quarter, however as the area incorporates much of
Blackburn’s earliest historic centre, including the course of a
Roman road that historically ran northwards between
Manchester to Ribchester and the medieval market place, the
Cathedral Quarter is considered to be extremely archaeologically
sensitive. A desk-based archaeological assessment has been
produced by Oxford Archaeology North as part of a wider
heritage and design commission for Blackburn Town Centre.
Readers are advised to consult this assessment should they
require detailed information on the archaeological significance
and potential of the wider area.
1.2.16 The results of recent archaeological surveys undertaken for
the Cathedral Precinct have uncovered no significant
archaeological remains, but the precinct is clearly an area of
archaeological potential. Following an assessment by
Lancaster University’s Archaeological Unit in 2000, the
precinct is identified as an archaeological site of regional
significance. It is known to include the site of a sixteenth
century grammar school, which now lies partly beneath the
north transept of the Cathedral, the foundations of the
original St Mary’s Church to the far north west of the
churchyard and the old vicarage to the south west.
1.2.17 It is also likely that there could be below-ground remains of
other structures. During building works in the 19th and 20th
centuries a number of graves were destroyed and bodies reburied, but it is thought that the lawn to the south of the
Cathedral nave may still contain some early burials.
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Physical characteristics
1.2.18 The River Blakewater is designated as a main river. Until the
early-mid 19th Century the River acted as a natural
boundary and development was confined by its course.
Following canalisation, the river was culverted from Jubilee Street
northwards enabling the construction of The Boulevard.
1.2.19 Today, the river continues to flow through the area in a north
south direction. Towards the south of the site the river is
exposed, whilst the remaining sections of the river are culverted
below the western frontage of Bridge Street and The Boulevard at
the south east edge of the Cathedral Precinct.
1.2.20 Within the grounds of the Cathedral there are 91 trees that
are protected by the Blackburn Town Centre Tree
Preservation Order (1991), reference Area A2. The issuing of
a TPO makes it an offence to cut down, top, lop, uproot,
wilfully damage or destroy any protected tree(s) without first
having obtained permission from the Local Authority. Local
Plan Policy HD8, also resists the felling of trees, including
those within a conservation area unless one or more of three
criteria are applicable, including that the desirability of the
development outweighs the amenity/ conservation value of
the tree.
Movement
1.2.21 The Cathedral Quarter provides excellent walking and cycling
connections and virtually all of the town centre lies within an
acceptable walking distance (figure 4). The Cathedral Quarter is
also well located in terms of public transport access. To the east
lies the town’s train station which is served by the Ribble
Valley Line (Clitheroe to Manchester), East Lancashire Line
(to Blackpool and Preston) and the Caldervale Line (York).
Directly adjacent to the train station is the Boulevard Bus
Station, which is served by a high frequency of bus services.
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
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Sustainability issues
1.2.22 The Sustainability Appraisal of the SPD has identified a number of
issues within the Cathedral Quarter that will need to be
addressed by new development. These issues have subsequently
helped to inform the preparation of the vision and objectives for
the Cathedral Quarter SPD and the development and design
guide within. These issues are set out below:
Civic Quarter
Town Hall
King George’s Hall
Tower Block
Market
Knowledge Zone
The Mall
Blackburn College
Morrisons
Cathedral
Station
Frackleton Street
Enterprise / Employment Hub
Leisure
Retail Park
Pedestrian routes
Cathedral views
Landmarks
Figure 4. Blackburn Town Centre 2009
River Blakewater
Economic
•
The Cathedral is an under-developed asset in the Town
Centre with limited visitor numbers for an Anglican
Cathedral. Currently it does not maximise its potential as
an attraction within Blackburn.
•
The town centre does not have a strong night time
economy.
•
There is no residential hotel accommodation in the town
centre.
•
Blackburn town centre has seen little if any speculative
office development over the last forty years which is
identified as a lack of developer confidence, available land
and car parking.
•
The total supply of floorspace available for office
development declined between 2003 and 2006 and as a
result of the lack of supply, occupiers seeking modern
‘Grade A’ space have vacated the town centre and have
been drawn to out-of-town locations.
Social
•
There is a very limited residential population within
the town centre.
•
There is no residential accommodation within the
Cathedral Precinct for clergy or support staff, which is
exceptional for an English Cathedral.
•
The appearance and quality of amenities offered by the
Cathedral, inhibit the maximum use of this asset.
•
The perception of crime is high in the town centre.
Environmental
Blackburn Cathedral Quarter Supplementary Planning Document
•
•
•
•
•
•
•
1.3
There are a number of examples of infill buildings that
unsympathetic to the historic integrity of the area.
Many of the buildings which form the boundaries of the
Cathedral precinct particularly those on the southern side
1.3.1
of Church Street and the western side of Railway Road
currently turn their backs onto the Cathedral and do not
exploit the potential of their setting.
The quality of surfacing and public realm is inconsistent
with the architectural and historic qualities of the area and
detracts from the special interest of the railway station
and the listed railings which define the eastern side of the
adjacent Cathedral Conservation Area.
The demolition of buildings that previously lined the
north eastern side of Darwen Street has meant that open
space within the Cathedral precinct is no longer
contained and the gatepiers adjoining Waterloo Pavilions
are now isolated.
1.3.2
Although the Cathedral Precinct provides an important
area of green space, views of the Cathedral are impeded
by clusters of trees.
Existing greenspace is particularly underused.
The whole southern area of the Cathedral Precinct is
significantly undermined by the visual impact of car
parking both within the precinct itself and to the BT car
park off Jubilee Street.
Movement & accessibility
•
Dandy Walk is underused due to the lack of surveillance
from adjoining properties and its dark and foreboding
atmosphere, prompting security concerns especially
night.
•
Connections around the south of the Cathedral are
particularly poor due to the worn quality of materials.
•
Whilst the passing of pedestrians through the northern
end of the Cathedral precinct is frequent, the usage of the
grounds for purposes other than passing through is very
low.
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Strategic and local policy context
Introduction
The SPD is set within a statutory spatial planning framework
that must be complied with and taken into account when
considering development proposals within the Cathedral
Quarter. This framework consists of:
•
•
•
•
National Planning Policy Statements
The North West of England Plan Regional Spatial
Strategy to 2021 (adopted 2008)
Blackburn with Darwen Borough Local Plan (adopted
2002)
The emerging Blackburn with Darwen Borough Core
Strategy
The spatial planning documents, programmes and strategies
that define this framework and which govern and influence
development proposals within the Cathedral Quarter SPD are set
out in Table 1. Information on where to obtain copies of these
documents is provided in Appendix 3.
14
NATIONAL
July 2009
Blackburn Cathedral Quarter Supplementary Planning Document
Securing the Future Delivering UK Sustainable Development Strategy (H.M. Government,
The Stationery Office)
Planning (Listed buildings and Conservation Areas) Act 1990 (Department of the
Environment)
Sustainable Communities Plan Building for the Future (ODPM)
Better Places to Live by Design: A Companion Guide to PPG3 (ODPM)
PPS1: Planning Policy Statement 1: Delivering Sustainable Development (Department of
Communities and the Local Government)
PPS 12: Planning Policy Statement 12: Creating strong, safe and prosperous
communities through Local Spatial Planning (Communities and Local Government)
PPS 3: Planning Policy Statement 3: Housing (Communities and Local Government)
PPS 6: Planning Policy Statement 6: Town Centres (Communities and Local Government)
PPS 9: Planning Policy Statement 9: Biodiversity and Geological Conservation (ODPM)
PPG 13: Planning Policy Guidance 13: Transport (ODPM)
PPG 15: Planning Policy Guidance 15: Planning and the Historic Environment
(Department of the Environment)
PPG 16: Planning Policy Guidance 16: Archaeology and Planning (Department of the
Environment)
PPG 17: Planning Policy Guidance 17: Planning For Open Space, Sport and Recreation
(ODPM)
PPS 25: Planning Policy Statement 25: Development and Flood Risk (Communities and
Local Government)
Building In Context: New Development in Historic Areas (CABE and English Heritage)
A Historic Environment: A Force for Our Future (Department for Culture, Media and Sport)
Power of Place – The Future of the Historic Environment (English Heritage)
Heritage Counts North West (English Heritage)
Planning for Town Centres: Guidance on Design and Implementation Tools (Communities
and Local Government)
Guidance Note 4 - Procedures For Major New Developments at Cathedrals (Cathedrals
Fabric Commission For England (CFCE))
Biodiversity Strategy for England (Defra)
REGIONAL
LOCAL
Making It Happen: The Northern Way - Creating Sustainable Communities in the North
West
The North West of England Plan Regional Spatial Strategy to 2021
Northwest Regional Economic Strategy 2006
Creating Inspirational Spaces 2007 (Places Matter)
Streets for All: North West (English Heritage)
Lancashire Biodiversity Action Plan, particularly Urban Habitat Plans 2008
The Transformational Agenda: Housing Market Renewal in East Lancashire. Scheme
Update 2006-2019.
North West Green Infrastructure Guide 2008 (North West Green Infrastructure Think
Tank)
Blackburn with Darwen Local Plan
Blackburn with Darwen Local Strategic Partnership – Community Plan
Blackburn Town Centre: Investing in the Future – Blackburn Town Centre Strategy for
2003 – 2008
Blackburn Design Guide SPD and associated Blackburn with Darwen Colour Study
A plan for the future of Blackburn Town Centre
Blackburn with Darwen Borough Council Local Transport Plan 2 2006 - 2011
Blackburn with Darwen Housing Strategy 2005 – 2008
Blackburn Historic Town Assessment Report
Blackburn Hotel Futures Study 2006
Blackburn Offices Capacity Study 2007
Lancashire Economic Strategy
Blackburn Town Centre Parking and Transport Strategy (Consultation Document)
Blackburn Boulevard Bus Station – Feasibility Study (Initial draft)
Blackburn Cathedral Precinct Masterplan (Blackburn Cathedral Developments)
Town Centre Desk Based Archaeological Assessment (Oxford Archaeology North)
Blackburn Cathedral Conservation Plan
Blackburn Town Centre Public Realm Strategy
Blackburn Town Centre Conservation Area Management Plan
Darwen Street Conservation Area Character Appraisal
Darwen Street Conservation Area Development Guide
Cathedral Quarter – Conservation Area Study
Cathedral Conservation Area Character Appraisal
Cathedral Conservation Area Development Guide
Table 1. The spatial planning documents, programmes, and strategies that define the SPD framework
Blackburn Cathedral Quarter Supplementary Planning Document
The Role of the Supplementary Planning Document
in the Statutory Spatial Planning Framework
1.3.3
1.3.5
1.3.7
Planning Policy Statement 12 (PPS12) sets out the Government’s
policy on local spatial planning. It specifically provides advice
and guidance on the production of spatial planning documents
and identifies that the role of SPDs is to provide greater detail
on the policies of Development Plan Documents (DPDs). DPDs
cover the main spatial planning policy issues and allocations,
such as providing sites for new housing and protecting the
countryside, and form an integral part of the Local Development
Framework (LDF), which comprises a suite of such documents.
July 2009
Policy HD1
Policy HD2
Policy HD3
Policy HD5
Policy HD6
Policy HD8
Policy HD9
Policy HD10
Policy HD11
Policy HD12
The Blackburn with Darwen LDF will eventually replace the
Blackburn with Darwen Local Plan, but until this occurs the
Council has ‘saved’ the spatial planning policies contained
within the Local Plan. The SPD provides greater detail on the
application of these policies within the Cathedral Quarter
to ensure that development is consistent with the vision. It
communicates the Council’s aspirations for the Cathedral
Quarter, providing an efficient and transparent planning policy
and design tool, which offers clarity to developers wishing to
invest in this unique opportunity.
Policy HD13
Policy HD14
The policies of the Blackburn with Darwen Local Plan that this
SPD most specifically builds on and that are likely to be of
importance in a planning application are set out below. A brief
description of each of these ‘saved policies’ is set out in Appendix
4.
Policy R11
Policy T1
Policy T2
Policy TRL3
Policy URB1
Policy ENV2
Urban Boundary
Flood Protection
Policy HD17
Policy HD18
Policy H2
Policy H4
Policy R1
Policy R10
Policy EC8
Policy BTC6
Policy BTC9
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Visual Appearance of Development – General
Considerations
Protection of Important Public Views
Access for All
Crime Prevention
Energy Conservation
Existing Trees and Landscaping
New Trees and Landscaping
Public Art
Development in and adjacent to Conservation
Areas
Alterations to Unlisted Buildings in Conservation
Areas
Alterations to Listed Buildings
Demolition of Listed Buildings and Demolition of
Unlisted Buildings within Conservation Areas
Locally Important Archaeological Remains
Archaeological Evaluation, Excavation,
Recording, Removal and Preservation
Development of Large Unallocated Sites
New Residential Development
Retail Development in Blackburn Town Centre
Restaurants, Cafes and Hot Food Take-Aways
(Use Class A3)
Use of Upper Floors and Basements
Public Transport – Bus Services
Public Transport – Rail Services
Tourism and Commercial Leisure Development
in the Urban Area
Site Consideration Policy
Darwen Street / Blackburn Cathedral Precinct
Environmental Improvement
1.3.8
1.3.9
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
16
The Local Plan identifies that many buildings and sites in the
vicinity of the Precinct “turn their backs” on the Cathedral and
fail to exploit the benefits of this setting. As stated under policy
BTC 6 (Darwen Street / Blackburn Cathedral Precinct)
development and redevelopment proposals will need to be
sympathetic to the character and building form of the
Conservation Area and to the importance and prominence of the
Cathedral Precinct.
The Council’s Design Guide SPD and associated Colour
Study have been produced to improve the overall quality of
design within the Borough. Considering the Cathedral Quarter’s
significance these documents are of particular relevance to
development and investment in the Cathedral Quarter and
should be referred to when generating proposals. Attention is
also drawn to the Conservation Area Appraisals that have been
produced for the Cathedral and Darwen Street conservation
areas that span the Cathedral Quarter.
Regeneration context
1.3.10 The latest Town Centre Strategy (2003-2008) puts forward a
series of programmes and actions, which building on past
achievements, seeks to continue the regeneration of the town
centre. The ambition for Blackburn is to become the premier
centre for retail, leisure and culture in East Lancashire, through a
series of proposals that aim to:
•
Create and enhance Blackburn Town Centre
as a sub-regional retailing and employment centre
servicing the residents, businesses and visitors in
East Lancashire.
•
•
•
•
Reduce unnecessary through traffic and pollution
in the Town Centre and enhance transport choice
and accessibility.
Create an attractive, safe and accessible
environment where residents and visitors
will want to shop and spend leisure time and in
which businesses will wish to invest.
Provide space for development, since
future investment decisions will depend heavily on
the availability of sites and premises, which meet
user requirements.
Increase inter-linkages between Town Centre
areas.
1.3.11 The Blackburn Town Centre Renaissance Programme is linked to
the Blackburn Town Centre Strategy and is a 6 year framework
designed to realise the regeneration of the Town Centre through
Council support. This SPD builds on the Town Centre Strategy
and Renaissance Programme by incorporating many initiatives
and developments that have yet to be realised and providing an
overall framework for the development of the Cathedral Quarter.
Relationship to other initiatives
1.3.12 The Cathedral Quarter is considered to be Blackburn’s flagship
renaissance project, with one of the most established identities in
the Town Centre and significant potential for quality retail, leisure
and housing. Imbedded within this SPD are the proposals of the
Cathedral Precinct Masterplan, produced by Blackburn Cathedral
Developments, which provides the ‘heart beat’ for the Quarter
in the form of residential and commercial development and an
enhancement of Blackburn’s physical and spiritual environment.
Blackburn Cathedral Quarter Supplementary Planning Document
1.3.13 The SPD is also set within a much wider sphere of regeneration
activity focused on the renewal of the local housing market. The
Cathedral Quarter borders the Elevate East Lancashire Housing
Market Renewal (HMR) area and the role of the Town Centre
in stimulating economic prosperity is notable. Elevate East
Lancashire’s Transformational Agenda will see investment spent
on improving the quality and diversity of the housing stock, but
in order to develop sustainable neighbourhoods and a healthy
housing market the quality of the Town Centre as a place where
people choose to work, visit and relax is significantly important.
Indeed, the Cathedral Quarter itself has potential to provide
quality new Town Centre housing that will contribute to HMR
objectives.
1.3.14 An agenda for quality development within the Town Centre has
been set by the Townscape Heritage Initiative (THI), which has
contributed to the renewal of heritage buildings and public
realm within the Cathedral Quarter. The development and
design guidelines of this SPD will seek to build upon the positive
improvements stimulated by THI and potential for further rounds
of funding in the future.
1.3.15 As the main public transport gateway to Blackburn, any future
improvements to the public transport network are likely to have
an impact on the Cathedral Quarter. Pennine Reach, a new rapid
bus service proposed to improve the public transport network
between Blackburn with Darwen and Hyndburn, will significantly
improve the accessibility of the Cathedral Quarter but is unlikely
to have a major effect on the road and townscape structure.
July 2009
17
18
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
PART 2 – Development Guide
2.1
Overview
2.1.1
The Cathedral Quarter is an unrealised opportunity at present.
Although it is home to two notable landmarks- the Cathedral and
the railway station- it is distinctly lacking in social and economic
activity. In order to define a more sustainable future for the area
a critical mass of activities is required to draw people into the
area and establish a new socio-economic driver for Blackburn.
The overall development strategy for the Cathedral Quarter is
thus to establish a distinctive sense of place through high quality
mixed use development that encourages an influx of activities,
commerce, residents and visitors.
2.1.2
Notwithstanding the cohesive qualities of the Cathedral Quarter
there are characteristics of the townscape structure that will
prompt different approaches to development across the area.
The Cathedral, for example, is Blackburn’s most distinctive
landmark and necessitates a particularly sensitive approach to
development, whilst the activity and vibrancy generated by
the existing public transport interchange should be expressed
in its buildings and uses. Accordingly this development guide
provides an overall context to development in the Cathedral
Quarter, identifying the ambitions for three character areas
(Development Zones) and two land use typologies, which
together will contribute towards the vision for the Cathedral
Quarter (see figures 5 and 6).
2.2
Development Zones
Cathedral Precinct
Station Interchange
2.2.1
Cathedral Precinct
Cathedrals and their adjoining closes are an integral feature in
most cities, yet Blackburn remains one of the only Cathedrals in
Jubilee Street
Figure 5. Development Zones
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
the UK where this does not exist. The aspiration is to enhance
the physical and spiritual setting of the Cathedral through a
range of complementary uses and new development that not
only supports the functions of the Cathedral and the creation
of a Cathedral Close, but which also drives the regeneration of
Blackburn and the creation of a new living community within the
Town Centre.
2.2.2
2.2.3
Consent has already been given for the redevelopment of the
southern boundary of the Cathedral Precinct for Cathedral
office and residential accommodation as well as private housing
development. The next priority will be to improve the western
and northern interfaces of the Cathedral Precinct to better
enclose and frame the Precinct and views of the Cathedral. This
will require the redevelopment of underused areas surrounding
the Cathedral and the refurbishment of neighbouring buildings
to create attractive frontages that animate and overlook
surrounding areas of public realm, but retain a positive
relationship with Church Street and Darwen Street. Indeed, a
new frontage of active ground floor uses on Darwen Street is
particularly encouraged to draw pedestrian footfall from the
main shopping area to the independent stores and businesses of
the wider Cathedral Quarter.
•
•
•
•
•
Promote the Cathedral as a unique destination in
Blackburn Town Centre.
Stimulate the regeneration of underused land and
buildings that surround the Cathedral.
Preserve key views and enhance the setting of the
Cathedral.
Create opportunities for a diverse mix of commercial and
residential development.
Improve the function and quality of the Cathedral
Gardens and other areas of public realm.
Enhance the role of the Cathedral in social cohesion and
spiritual leadership and as a centre of excellence
for the arts.
Station Interchange
2.2.4
When emerging from Blackburn railway station rather than be
greeted by a vibrant gateway the experience is underwhelming,
the area being dominated by vehicular movement and not much
else. Considering this highly accessible location, land is used
very inefficiently and there is a distinct opportunity to create a
more welcoming identity that achieves wider regeneration aims
and improved public transport facilities for the town.
2.2.5
Blackburn has an enviable asset with the bus and rail stations
in such close proximity facilitating easy bus/rail, rail bus, (and
bus/bus) interchange, but current facilities are poor. A new bus
station is at the heart of the Pennine Reach major scheme bid
to the Department for Transport and it is envisaged that whilst
interchange facilities will remain on Railway Road, a new bus
station will be accommodated outside of the Cathedral Quarter
thus facilitating a new development site on the site of the
existing Boulevard bus station.
2.2.6
The aspiration is that the site of the former bus station will
become a new economic hub for Blackburn composed of
modern ‘Grade A’ offices with active commercial uses and
In summary the development principles for the Cathedral
Precinct are to:
•
19
attractive areas of public realm to the ground floor. This in turn
should provide the stimulus for further investment on Railway
Road to create a more vibrant mix of day and night time uses
within refurbished buildings and developed gap sites on Railway
Road, including the largely vacant railway station frontage.
2.2.7
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
20
The development principles for the Station Interchange
development zone are to:
•
•
•
•
•
•
2.2.9
A fresh approach is needed, which takes advantage of the
neighbouring development opportunities of the Cathedral
Quarter and which contributes to the wider regeneration
objectives of the Town Centre. A mix of new development and
building refurbishment is envisaged to redefine this vacant area
for new town centre activities.
2.2.10 The development principles for the Jubilee Street development
zone are to:
Exploit the fact that the area performs a strategic
transport function by defining a major gateway
and arrival point through high quality buildings and
public realm.
Create a new commerial hub of development on the site
of the Boulevard Bus Station.
Stimulate the refurbishment of derelict and underused
buildings on Railway Road.
Preserve and enhance key views of the Cathedral and the
setting of the conservation area.
Enhance the vibrancy of this area and its role
within Blackburn Town Centre.
Improve the quality of the public realm and create
opportunities for new open spaces.
•
•
•
•
•
Stimulate the regeneration of underused land and
buildings through a diverse mix of new commerical and
community uses.
Preserve and enhance the quality of the
conservation area through refurbishment and high quality
new development.
Enhance the vibrancy of the area and its role
within Blackburn Town Centre.
Create opportunities for new open spaces and an
enhanced riverside environment.
Service the Cathedral Quarter with a new multi-storey car
park.
2.3
Land use typologies
2.3.1
The land use typologies aim to provide a complementary mix
of land uses appropriate to the setting of the Cathedral Quarter
(figure 6). These typologies strike a balance between creating
a more animated and vibrant quarter of the Town Centre and
a setting befitting the status and amenity of a Cathedral and
burgeoning residential community. Development proposals
Jubilee Street
2.2.8
The area south of Jubilee Street is largely a neglected area of
the Town Centre and is somewhat detached from the rest of
the Cathedral Quarter. It comprises a number of traditional
commercial buildings, yet most of these buildings are empty, and
fail to capitalise on this location at the heart of the town centre.
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
21
will be considered on the basis of these typologies as well as the
individual merits of the application to ensure there is a sensitive
balance of land uses within the quarter. These zones are not
indicative of building footprints, but are merely an indication of
the general area where particular land uses will be welcome.
Cathedral Precinct
2.3.2
The Cathedral Precinct typology is aimed at a suitable land
use mix that retains a peaceful, but animated setting for the
Cathedral that also fosters a suitable environment for a town
centre residential community. Development proposals should
contain a mix of uses that support activity by both day and
night, but residential amenity must be protected through a
combination of design measures and effective management of
non-residential uses.
2.3.3
Appropriate uses within this character area include community,
residential and administrative uses that support the functions
of the Cathedral, along with other complementary uses
including residential apartments for sale and rent, hotels and
offices. Active ground floor uses including shops (use class
A1), restaurants and cafes (use class A3) are also encouraged,
particularly units that encourage a unique and independent
flavour to the quarter.
Cathedral Gateway
Cathedral Precinct
Cathedral Gateway
Figure 6. Land Use Typologies
2.3.4
The Cathedral Gateway typology recognises the train and bus
stations as the dominant feature providing a more vibrant
ambience for uses that are not overtly residential in character
and which have longer opening hours into the evening. Land
July 2009
22
uses that are encouraged include active ground floor uses such
as shops (use class A1), financial and professional services (use
class A2), restaurants and cafes (use class A3) and drinking
establishments (use class A4), as well as community, cultural
and institutional uses, offices (to Grade A standards) and
hotels. Any planning applications for residential development
will be considered in relation to surrounding uses to ensure
that the mixed use character of the area is retained with no
predominance of one particular use.
Relevant Local Plan Policies:
H2
H4
R1
R10
R11
TRL3
EC8
BTC6
Development of Large Unallocated Sites
New Residential Development
Retail Development in Blackburn Town Centre
Restaurants, Cafes and Hot Food Take-Aways (Use Class A3)
Use of Upper Floors and Basements
Tourism and Commercial Leisure Development in the Urban Area
Site Consideration Policy
Darwen Street / Blackburn Cathedral Precinct
Blackburn Cathedral Quarter Supplementary Planning Document
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
23
PART 3 – Design Guide
3.1
Overview
3.1.1
As Blackburn Town Centre’s flagship renaissance project and
considering the special historic character of the Cathedral
Quarter it is essential that development proposals contribute to
the enhancement of the appearance, quality and character of the
quarter and safeguard the role and identity of the Cathedral. To
achieve this, all development proposals will need to demonstrate
that they accord with the design principles of this chapter, which
expands on the policies of the Blackburn with Darwen Local Plan
and interprets the Cathedral Precinct Masterplan and the wider
development ambitions of the Cathedral Quarter.
3.1.2
Applicants seeking planning permission within the Cathedral
Quarter will be expected to demonstrate that they have
considered this design guidance in an accompanying Design
and Access Statement with any planning application. For help in
writing a Design and Access Statement, please refer to the CABE
document “Design and access statements How to write, read and
use them” (www.cabe.org.uk) and to Part 5 of this Document.
3.1.3
The design guidance relates to the following issues:
•
•
•
•
•
•
•
•
Sense of place
Views, vistas & enclosure
Public realm
Design quality
Historic environment
Sustainable design
Safeguarding amenity
Passive security
•
•
Movement & car parking
Biodiversity & green infrastructure
3.1.4
Specific advice for proposals within the Jubilee Street
Development Zone is provided in section 3.3.
3.2
Design Guidance
Sense of place
3.2.1
The aspiration for a ‘Cathedral Close’ is to create a unique setting
that befits the status of the Cathedral. The space between
buildings should encourage variety and interest by attracting
and accommodating different activities and moods that foster
pedestrian activity during the day and into the evening (see
figure 7). Where new open space or improvements to existing
open space are proposed (i.e. street furniture, signage and public
art) the likely usage and relationship to adjacent buildings should
be determined early in the design process to ensure that the
space relates in terms of scale and function to neighbouring
development as set out below.
•
Cathedral Gardens
The lawns surrounding the Cathedral provide an open and
informal setting for relaxation and social interaction, but this
could be much improved. Rather than being just a place to sit or
walk through, the design of this space could incorporate different
activities that enliven the senses and create a more interesting
place that attracts and holds people. The pastoral character of
open grassed areas, trees and planting should be retained as a
green ‘haven,’ however, opportunities to make the space more
24
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
accessible, safe, comfortable and interesting will be encouraged
through improvements to the main area of open space and some
development of underused ‘edges’ to frame and animate the
gardens. Re-grading of lawns, improved planting, tree works to
improve safety and open up views (including felling / pruning
of diseased or over mature specimens, subject to Policy HD8
of the Local Plan), repair of structures such as the Astley Gate,
Temple Court Gate and War Memorial, excavation, preservation
and celebration of the old parish church foundations and
floodlighting of the Cathedral all need consideration as part of
an integrated landscape scheme. There is also scope to extend
the Cathedral Gardens as part of the public realm proposals
associated with the redevelopment of the bus station and to
create new pedestrian routes through the Cathedral Precinct
from The Boulevard. Such works will require alteration of the
listed railings in order to open up the gardens and any heritage,
landscape or archaeological impacts will need to be identified
and mitigated against in line with section 3.2.6.
•
The Cathedral Approach
The ceremonial entrance to the West Door of the Cathedral
from Darwen Street should be designed to complement the
fine architecture of the Cathedral and provide a formal space for
Cathedral activities and a quiet space for contemplation.
•
Crypt Yard
The Cathedral Precinct Masterplan identifies a new public space
to the south east of the precinct fronting The Boulevard and the
Crypt. The space should have a strong landscape character and
sense of place to create an animated destination and gathering
point associated with active ground floor uses associated with
the proposed Mitre Court. The design of the square should
Cathedral Gardens
Interchange Square
Cathedral Approach
Clergy Court
Crypt Yard
Figure 7. Sense of Space
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
incorporate the Victoria statue and will require sympathetic
alteration of the listed railings to create an entrance from The
Boulevard.
•
Interchange Square
Proposals to rationalise the bus station create the opportunity for
a new gateway to Blackburn. Rather than be dominated purely
by transport functions, areas of public realm associated with the
bus and train station should be designed equally for the benefit
of pedestrians to create a safe, attractive and uncluttered civic
space that is strongly integrated with the movement structure of
the Town Centre.
Cathedral Gardens design exemplar
Cathedral Gardens design exemplar
Cathedral Approach design exemplar
Forecourt design exemplar
Crypt Yard design exemplar
Cathedral Gardens design exemplar
•
Clergy Court
Planning permission has already been granted for the
development of Cathedral facilities including a library, refectory,
administrative offices and staff residential accommodation to
the south of the Cathedral Precinct. The development includes
a number of intimate and private spaces that will predominately
be for the use of Cathedral staff and visitors.
•
Forecourts and semi-private spaces
The diverse mix of uses supported by this SPD have potential
to spill outside and create animated outdoor areas. Hotels,
restaurants, cafes and bars offer the potential for appropriately
defined alfresco dining spaces at ground level, provided they do
not infringe upon residential amenity.
Relevant Local Plan Policies:
HD8
HD10
HD11
Existing Trees and Landscaping
Public Art
Development in and adjacent to Conservation Areas
25
July 2009
26
HD13
HD17
HD18
BTC9
Blackburn Cathedral Quarter Supplementary Planning Document
Alterations to Listed Buildings
Locally Important Archaeological Remains
Archaeological Evaluation, Excavation, Recording,
Removal and Preservation
Environmental Improvement
Views, vistas & enclosure
3.2.2
A Cathedral Close is generally characterised by a closely related
ensemble of buildings and open spaces, which conversely
define a strong sense of enclose and views of a Cathedral. At
Blackburn there has never existed a Cathedral Close as such, but
the traditional townscape of the town once consisted of a much
tighter urban grain as can be seen in figure 8.
3.2.3
In the interests of creating a more intimate and urban feel to the
Cathedral Quarter, new development should once again enclose
the Cathedral. This will require new development on derelict and
underused areas surrounding the Cathedral, which should define
its visual dominance and encourage people to discover the area,
through carefully planned near glimpses and more distant views.
•
In accordance with Local Plan Policies HD2 and HD11,
any proposals for new development should protect the key
views, vistas and glimpses of the Cathedral as set out in figure 9.
There is significant potential to enhance these views by better
enclosing and framing the Cathedral with well proportioned,
scaled and positioned buildings.
Areas where townscape structure has broken down
•
The demolition of buildings on Darwen Street has
meant that the Cathedral Precinct is no longer contained and
appears to ‘leak’ into the street, whilst the street itself has lost its
continuity as a commercial link. Considering also that Church
Figure 8. Historic and contemporary townscape structure
Blackburn Cathedral Quarter Supplementary Planning Document
House presents its rear elevation to the street and that the
listed Cathedral Gateway gate piers are at present a redundant
and isolated feature, the prospect of redefining the precinct
by reinstating a frontage of development either side of the
West Door View would be a fitting response to re-establishing
the historic townscape pattern of the town. Considering
the sensitivities of this site on the setting of the Cathedral a
specific brief for this phase of development will be drawn up by
Blackburn with Darwen Borough Council in consultation with the
developer and CABE. This will develop from the design criteria
of Local Plan Policy HD1 and will emphasise the opportunity
to frame the Classic and West Door views of the Cathedral with
buildings of an appropriate scale, massing and detail.
July 2009
Character Glimpses
Railway Road View
Classic View
West Door View
•
The potential of ‘wrapping’ a new frontage of
development to the rear of properties on Church Street by
building up to the pavement edge of the existing pedestrian
route is considered a particular opportunity to create a more
attractive and active edge to the Cathedral Precinct. Such a
building should reflect the building height of existing properties
on Church Street and create an sensitive and engaging setting to
the Cathedral.
•
The redevelopment of the Boulevard bus station will need
to be handled with particular sensitivity in regard to the impact
on views to the Cathedral from the station. A strong view of the
Cathedral lantern and spire should be retained when emerging
from the train station, opening up to a wider view of the main
body of the Cathedral on approach. This is likely to require
the development of two buildings facing the train station and
Railway Road respectively. Here there may be greater scope for
taller buildings and highly distinctive elevational treatments to
27
Staon View
Figure 9. View Corridors
28
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
define the gateway to Blackburn, but designs will need to be
sensitive to the wider backdrop of the Cathedral from outside the
Cathedral Quarter, particularly looking eastward from King Street,
southward from the higher ridges of the town and northward
from the Leeds / Liverpool Canal and station platform (figure 4).
Relevant Local Plan Policies:
HD1
HD2
HD11
Traditional example of enclosure.
Contemporary example of enclosure
Public realm
3.2.4
Local example of enclosure
Key aspects to retain- West Door View
Key aspects to retain- Classic View
Key aspects to retain- Station View
Visual Appearance of Development
Protection of Important Public Views
Development in and Adjacent to Conservation Areas
Opportunities to create new pedestrian linkages and areas of
open space are welcomed, but need to be fully considered. The
Council will not generally adopt small pieces of surplus and
unusable space. A consistent high quality approach to public
realm design, materials and lighting is required to ensure that the
entire Cathedral Quarter is an exciting and attractive place with a
strong identity.
•
Any measures to improve pedestrian permeability should
form logical and usable connections to the movement network
by relating to desire lines and being highly conspicuous and
overlooked by adjacent buildings.
•
The route through the Cathedral Gardens from the
original market cross to The Boulevard is of significant
importance to the pedestrian network. The route should remain
ungated and improved as a safe, convenient and comfortable
Town Centre walkway integrated between the shopping centre
and train station. This will require new lighting, improvements
Blackburn Cathedral Quarter Supplementary Planning Document
to pavement surfacing and better soft landscaping to enhance
forward vision and to remove potential hiding places. As part
of the redevelopment of the bus station the route should be
extended eastwards towards the train station in a rational,
attractive and safe layout.
•
Neighbouring development proposals should contribute
to the improvement of Dandy Walk as a safe pedestrian route.
This will include improved lighting, surface and boundary
treatments and opportunities to create overlooking through
adjacent development.
•
The quality of surfacing and public realm should be
consistent with the architectural and historic qualities of the area,
but should be contemporary in its conception. In order to ensure
consistency of surface materials, selection of materials should
be based upon the material palette within the Blackburn Town
Centre Public Realm Strategy (see Table 2).
•
The integration of public art into streets and open spaces
can contribute to the legibility of the Cathedral Quarter and
emphasise its local identity by revealing hidden architectural
treasures, exciting interest and encouraging social interaction. In
line with Policy HD10 development schemes within the Cathedral
Quarter may require the provision of developer funds for new
public art works. Such artworks should be fully considered in
terms of their landscape / urban context and function; artworks
should be well sited to avoid street clutter and ideally should
perform a function (way finding, lighting, seating etc.) even if its
incidental.
•
The design of open space should enable easy and cost
July 2009
29
effective long term maintenance by being constructed from
robust, easily replaceable materials that are in keeping with the
character of the area and the use of the space.
Street
Footway
Church Street,
Darwen Street
(from Church
Street to
Dandy Walk)
Buff grey, random
Porphory
sized sandstone
rectangular setts
slabs, Porphory
square setts, various
laying patterns
Carriageway
Kerb
Granite wide
kerb
Darwen Street
(from Dandy
Walk),
Junction of
Church Street
and Railway
Road
Buff grey, riven
or smooth sawn,
randomn sized
sandstone slabs
Tarmac with red
chippings
Textured
concrete kerb
Railway
station
frontage
Buff same size
square concrete
slab
Tarmac
Standard
concrete kerb
Railway Road,
The Boulevard
Red and Buff
patterned block
paving to footway
Tarmac
Standard
concrete kerb
Jubilee Street,
Pilkington
Street, Bridge
Street, George
Street.
Tarmac
Tarmac
Standard
concrete kerb
Table 2. Appropriate public realm materials
•
To comply with Local Plan Policy HD5, streets and public
spaces should be well lit and easy to monitor either through
passing / natural surveillance or CCTV to promote the safety
and security of people and property. The selection of lighting
30
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
types should be simple in style and in scale with the surrounding
built environment. Particular guidance on the selection of
lighting types is provided in Blackburn Town Centre Public Realm
Strategy.
Relevant Local Plan Policies:
Public art design exemplar
HD1
HD3
HD5
HD8
HD9
HD10
BTC9
Public art design exemplar
Visual Appearance of Development
Access for All
Crime Prevention
Existing Trees and Landscaping
New Trees and Landscaping
Public Art
Environmental Improvement
Design quality
3.2.5
Planting exemplar
Public realm design exemplar
New development should contribute positively to the
established character of the quarter, as well as the standard of
contemporary design within the Town Centre. In line with Policy
HD11 proposals will be expected to be sensitive to the traditional
qualities of this historic location, but they should also be a true
representation of 21st century design.
Public realm design exemplar
Public realm design exemplar
•
Applicants are encouraged to take appropriate steps to
ensure design proposals are of a high quality and are appropriate
to their setting within a conservation area. It is vitally important
to understand the character of the conservation areas through a
review of the Conservation Area Character Appraisals for Darwen
Street and the Cathedral, supplemented by on site analysis in
terms of building lines, building heights, roof line, massing, the
prevailing rhythm, pattern and proportion of building facades
and local materials. This analysis should then be used to create
high quality contextual buildings and spaces that reflect the best
qualities of the Cathedral Quarter.
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
•
In accordance with Local Plan Policy HD1 the visual
appearance of new development is a key consideration,
however in light of the Cathedral Quarter’s significance, this is
a particularly important issue. Buildings should be of a design
quality that represents Blackburn’s flagship renaissance projectbold, attractive and distinctive.
•
Opportunities to increase the diversity of the area with
sensitive high quality façades should be exploited, but designs
should have integrity. ‘Facadism’ or ‘pastiche’ whether in a
contemporary or historical idiom should be avoided in favour of
coherent, considered and intelligent building design.
•
The aspiration to create a Cathedral Close should be
reflected in the human scale, animation and intimacy of its
setting. Buildings should not be set back from the pavement
edge and should front on to and be directly accessible from
streets and public areas. Active ground floor uses such as shops
and cafes do this well as do regularly spaced windows and high
instances of glazing, which help to animate the streetscene and
promote natural surveillance. Where buildings front a number of
frontages, facades should address each public edge, particularly
in the case of the Cathedral Precinct and Church Street / Darwen
Street. Intimacy and comfort can be further emphasised through
texture, colour, materials and planting.
•
Buildings at street intersections in the Cathedral Quarter
are either faceted or curved in form with a greater massing and
height shaped by turreted structures or elaborate roof forms. A
contemporary interpretation of this at corners and junctions will
reinforce the distinctiveness and legibility of new development.
Darwen Street design exemplar
Interchange design exemplar
Cathedral Close design exemplar
Commercial building design exemplar
Commercial building design exemplar
Multi-storey car park design exemplar
31
32
July 2009
Blackburn Cathedral Quarter Supplementary Planning Document
•
Facades tend to have few projecting features with subtle
relief provided by recessed windows and doorways and the
vertical emphasis provided by the rhythm of window openings
and the articulation of facades. This should be reflected in new
buildings with gaps to the edges of urban blocks and low grade
rear elevations defined by a vertical as opposed to horizontal
rhythm of fenestration and detailing. In larger development
schemes added attention should be given to breaking down the
scale and massing of elevations to reflect traditional plot sizes.
•
Additional character within the Cathedral Quarter is
provided by its broken and articulated roofscapes principally at
corners. This should be expressed in new development where
appropriate.
•
The specification of materials should be based on a
strong identity that relates well to the local townscape context.
Red brick and buff ashlar stone are the predominant building
materials to facades and the degree of importance placed upon
any building is reflected in the amount of stone used in the
façade. The use of these local traditional materials, consistent
colours and crafted building techniques will be encouraged
in new developments, particularly when they are used in a
contemporary manner.
•
Materials should comprise warm, buff (stone) colours
and contrasting colours should only be used where there is an
architectural justification (i.e. at quoins, window cills etc.). The
degree of contrast should be kept within a subtle range of warm
buff.
Facade treatments and materials exemplars
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
Relevant Local Plan Policies:
HD1
HD11
EC8
Visual Appearance of Development
Development in and Adjacent to Conservation Areas
Site Consideration Policy
Historic environment
3.2.6
The whole area covered by the SPD falls within a conservation
area and many buildings within the Cathedral Quarter are listed,
not least the Grade II* Cathedral. Issues of conservation and
heritage will thus be of significant importance when determining
planning applications. Development proposals will need to
comply with Local Plan Policies HD11, HD12, HD13 and HD14 in
particular, as well as guidance provided by PPG15.
•
Conservation areas are determined by the Council to have
special architectural or historic interest, which is desirable to
preserve or enhance. The general presumption is thus to retain
buildings that make a positive contribution to this character or
appearance. The Cathedral and Darwen Street Conservation
Area Character Appraisals have established that in addition to
the listed buildings of the Cathedral Quarter a number of non
listed buildings are significant to the quality of the area and these
buildings are illustrated in figure 10. The particular contribution
of commercial buildings on Railway Road, Church Street, Darwen
Street and Bridge Street to the quality of the Cathedral Quarter
is noted and opportunities to refurbish listed and significant
buildings through conversion to new uses will form the primary
consideration in any development proposal.
•
Any alterations to facilitate the reuse of buildings should
ensure that the original character of the building is retained
Grade II* Listed building
CFCE ‘Red line plan’
Grade II Listed building / structure
Cathedral Conservation Area
Unlisted building of townscape merit
Darwen Street Conservation Area
Figure 10. Townscape and conservation
33
34
July 2009
Blackburn Cathedral Quarter Supplementary Planning Document
and enhanced. Any departure from the original character
of the building will only be deemed suitable if can be clearly
demonstrated that the extent of works proposed would bring
substantial benefits, in terms of the economic regeneration of
the area or the enhancement of the environment.
•
Although there is a presumption against demolition in
the Cathedral and Darwen Street conservation areas, there may
be instances where demolition of a building is unavoidable. In
such instances, developers will be required to demonstrate that
proposals are fully justifiable in line with the criteria set out in
PPG 15 and Policy HD14 of the Local Plan. As the guidance in
PPG 15 states, consent for the total or substantial demolition of
buildings that make a positive contribution to the character or
appearance of a conservation area will not be granted unless
evidence can be presented to demonstrate that all reasonable
efforts have been made to sustain existing uses or find viable
new uses, and these efforts have failed; that preservation in
some form of charitable or community ownership is not possible
or suitable; or that redevelopment would produce substantial
benefits for the community which would significantly outweigh
the loss resulting from demolition.
•
Proposals for new infill development should respect the
architectural character and townscape setting of the area, but by
definition of their time should be contemporary constructions.
•
New development should sit comfortably with the historic
street pattern and retain the existing block pattern.
Contemporary design in a historic context
•
The Cathedrals Fabric Commission for England (CFCE) is
a national statutory body which oversees works to cathedrals,
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
their precincts, and the objects within them. Any development
falling within the designated Cathedral Precinct ‘red line plan,’ will
require consultation with and application to the CFCE.
buildings, the reuse of existing buildings for new uses is
particularly encouraged.
•
Where practical, materials should be procured locally to
reduce the energy used in transportation.
Relevant Local Plan Policies:
HD11
HD12
HD13
HD14
Development in and Adjacent to Conservation Areas,
Alterations to Unlisted Buildings in Conservation
Alterations to Listed Buildings
Demolition of Listed Buildings and Demolition of Unlisted Buildings
within Conservation Areas
•
Materials should be durable and robust so that they
can be easily maintained and cleaned, minimising the need for
replacement.
Sustainable design
3.2.7
•
New developments should provide sufficient refuse
storage space both internally and externally to enable
segregation of waste for recycling. Careful consideration should
be given to the siting of these areas to minimise any associated
noise and odour impacts on adjacent areas.
Climate change is a problem of global proportions that requires
action at the local level to minimise the impact of development
upon the natural environment. By embracing sustainable design
principles, individual developments can make a contribution to
an overall reduction in the use of energy required to construct
and operate buildings.
•
The use of Sustainable Urban Drainage Systems (SUDS) is
encouraged to reduce the environmental impact of surface water
run off. Methods which are appropriate in this location include
the use of porous paving.
• Subject to any overriding conservation or
urban design issues, developments should embrace
sustainable design concepts such as passive solar gain,
natural ventilation, renewable energy, photo voltaic panels,
water saving fixtures and fittings and rainwater collection.
•
In order to demonstrate the environment performance
of a development, commercial buildings should attain at least
a “Very good” rating on the Building Research Establishments
Environmental Assessment Method (BREEAM). Housing should
reach a minimum of Code 4 in the Code for Sustainable Homes
•
Given the amount of embodied energy in existing
35
Relevant Local Plan Policies:
HD6
Energy Conservation
Safeguarding amenity
3.2.8
Successful mixed use development requires sufficient design
measures to mitigate against potential nuisance, specifically in
terms of its impact on residential amenity. Any development
proposals will need to demonstrate that the proposed buildings
can be occupied without unacceptable harm to the amenity
of occupiers and/or their neighbours by complying with the
36
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
without the need to reverse) and away from sensitive uses (such
as residential or offices) to minimise any noise and odour impacts
typically associated with rubbish collection and storage. These
should be screened from public / residential views and there
should be segregation of services between particular uses within
a development.
following guidelines and the land use typologies set out in
section 2.3.
•
Night time noise generating uses such as drinking
establishments and large scale restaurant and café uses will
generally be incompatible with the Cathedral and residential
development. In order to maintain vibrancy during the day
as well as the evening, such uses are best mixed with offices,
cultural and community uses and located within the Cathedral
Gateway land use typology.
•
In order to satisfy the requirements of Local Plan Policy
ENV4, noise levels from commercial uses must be controlled to
reduce their impact on residential uses. Noise generated from
commercial premises must not exceed a Noise Rating of NR25
in dwellings. This criterion curve sets an upper noise limit for
each octave band, and particularly restricts bass frequencies
associated with loud music. To achieve this Noise Rating, typical
measures may include insulation of the façade of the commercial
premises (with particular emphasis on windows as they often
form the path of least resistance); keeping doors closed (e.g. by
use of lobbied doors and automatic door closers); mechanical
ventilation and air conditioning; additional party wall/floor
insulation (over and above Building Regulation requirements);
noise limiting devices on amplification equipment; and the
internal arrangement of accommodation to separate noise
producing and noise sensitive areas.
•
Any storage, rubbish bins, utility meters and mechanical /
electrical equipment should be integrated within the curtilage
of a development and set within a designated service area that
is located for convenient access by service vehicles (preferably
• In order to satisfy the criteria of Local Plan Policy ENV5,
lighting of outdoor service areas, shop fronts and the public
realm should be designed and directed so as not to create glare
on residential properties.
•
Whilst residential amenity standards may be relaxed in
more intense urban environments such as the Town Centre,
attention should be paid to the occupants of any residential
accommodation and their quality of life in respect of privacy,
natural light and views.
Relevant Local Plan Policies:
ENV4
ENV5
EC8
Control of Noise Nuisance
Light Pollution
Site Consideration Policy
Passive security
3.2.9
The increase in footfall generated by a more vibrant mix of uses
is considered vital to improving safety in the area by reducing
feelings of isolation and improving surveillance. The design
of development will ultimately determine, however, whether
criminal activity can be discouraged and community safety
improved.
Blackburn Cathedral Quarter Supplementary Planning Document
•
New buildings should follow a block layout designed to
frame public space and contain private space to the rear of the
property. Particular care should also be taken when designing
corners to avoid the creation of gaps in the street frontages and
blank end facades.
•
Active frontages at ground level including shops and
leisure uses can contribute to creating more active use of
adjoining public space. Ground floor uses such as shops,
restaurants and cafes will be encouraged subject to the land use
typology of the development site.
•
Entrances to a building should be clearly visible from
surrounding buildings and accessed from the street or a public
space.
•
The internal layout and location of windows should be
designed to ensure that public areas are overlooked by adjacent
buildings.
•
Pedestrian routes should allow for good forward vision
to aid easy orientation and passing surveillance. Careful
consideration should be given to ground floor layouts, avoiding
alleys and alcoves that could compromise safety by creating
hidden areas or obstructions.
•
Explicit security measures that foster a fortress mentality,
such as roller shutters, will not normally be allowed, as these can
contribute to an increased fear of crime.
Relevant Local Plan Policies:
HD5
Crime Prevention
July 2009
37
Movement & car parking
3.2.10 The town centre location of the Cathedral Quarter and its
excellent accessibility by public transport highlights the potential
to promote more sustainable forms of transport than the private
car. The quarter will still need to be accessible by car, however,
and additional car parking will be needed to service the area.
•
The boulevard bus station will be reconfigured to create a
more efficient use of space. The new bus station will run parallel
to the train station entrance and function less as a bus layover
area and more as a number of bus stops within one convenient
place.
•
The phase 1 planning application for Blackburn Cathedral
includes an underground car park with access from Dandy Walk
via Darwen Street.
•
An additional multi-storey car park is envisaged within the
Jubilee Street development zone.
•
Any additional parking to these car parks is not envisaged
within the quarter.
3.2.11 Local people have recently been consulted on two strategies by
Blackburn with Darwen Borough Council – the Blackburn Town
Centre Transport Strategy and Blackburn Town Centre Parking
Strategy. The results of both consultations has shaped the
planning process for future travel and transport schemes, and the
Council is in the process of signing off a transport ‘vision’ for the
Town Centre. The main elements of the Town Centre Transport
Vision follow and are illustrated in Figure 11.
38
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
•
To support modal choice and modal shift through
widening accessibility to alternative modes other than car, by
giving priority on routes approaching the Town Centre to buses.
•
Increase accessibility and choice, for all areas such as
health care, education, retail and economic activity.
•
To create a number of satellite bus zones at Feilden Street,
King Street and Darwen Street, comprising real time information
and DDA compliant level boarding facilities, whilst keeping focus
on the Boulevard area as the key point for interchange.
•
The need for good signage to town centre quarters and
car parks to help visitors navigate around a complex urban road
system.
•
To close Railway Road to through traffic as part of the long
term Town Centre Transport Strategy, removing unnecessary
through traffic from the Inner Town Centre and reinforcing the
Orbital Route as the main way to navigate around the Town
Centre.
•
The need for the Council to control and manage car
parking in order to limit traffic growth and pollution in and
around the town centre.
•
To allow access at the front of the Railway Station for
drop off / pick up only (possibly Taxis but be mindful of the rear
entrance to the station near the Vue Cinema).
•
To ensure development has the appropriate level of car
parking – i.e. if the site is in an accessible location then parking
will be agreed at a lower level.
•
The development of two multi storey car parks (at the
Cathedral area and at Feilden Street) – to accommodate the town
centre’s future increases in employment and the development of
long stay surface car parks.
•
To enable public transport to effectively serve parts of the
Town Centre i.e. the College / Primary Health Care Centre / Courts
North West area of the Town.
•
To ensure the smooth running of the orbital route in terms
of junction efficiency and traffic light timings through better use
of the Urban Traffic Management and Control (UTMC) system of
controlling traffic lights.
Relevant Local Plan Policies:
HD3
T1
T2
T9
T11
Access for All
Public Transport – Bus Services
Public Transport – Rail Services
New Developments – General Transport Considerations
Private Non-Residential Car Parking within Blackburn Town Centre
Biodiversity & green infrastructure
3.2.12 Within this area there are two greenspace corridors, the railway
line and the River Blakewater, which are defined under Local
Plan Policy LNC4 on account of the important wildlife habitats
that these areas provide. The Cathedral Gardens also serve
as an important area of public open green space within the
town centre. Such green infrastructure performs a number
of important environmental functions which can help to
mitigate against climate change and also provides increased
opportunities for enhancing biodiversity which is important
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
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39
40
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
given the Duty the Council have under Section 40 of the Natural
Environment and Communities Act (NERC) 2006 to have regard
to the conservation and enhancement of biodiversity,
convenience to discuss flood risk implications.
•
The opportunity exists not necessarily to open up the
culvert, but to at least restore the ‘memory’ of the river. This
could take the form of a surfacing treatment or water feature.
•
Development proposals should conserve and enhance
existing green infrastructure where it is of high quality and
already providing appropriate functions. Opportunities to
improve the quality and functionality of green space should also
be exploited by locally indigenous planting where appropriate.
•
The River Blakewater is designated as a main river and
runs through the Cathedral Quarter. It is partly exposed south
of Jubilee Street, where it then enters a culvert at The Boulevard.
Under the terms of the Water Resources Act 1991 and the Land
Drainage Byelaws, the prior written consent of the Environment
Agency is required for any proposed works or structures in,
under, over or within 8 metres of the edge of the retaining wall /
culvert of the River Blakewater. It can not be assumed that the
consent of the Environment Agency will be forthcoming, and
developers must therefore ensure that contact is established
with the Environment Agency at the earliest opportunity to
discuss the implications of site specific proposals.
•
An area to the west of the Blakewater is likely to be
affected by a major flood, with up to a 0.1% (1 in 1000) chance
of occurring each year. As stated in Local Plan Policy ENV2,
new development will only be permitted if it is not itself at risk
of flooding or increasing the risk of flooding elsewhere. Given
the flood risk issues, any redevelopment of a site in this area
would need to satisfy the requirements of PPS25, including
the Sequential and Exception Tests. Developers are therefore
encouraged to contact the Environment Agency at the earliest
Relevant Local Plan Policies:
ENV2
HD8
HD9
LNC8
LNC9
LNC 10
3.3
3.3.1
3.3.2
Flood Protection
Existing Trees and Landscaping
New Trees and Landscaping
Ecological Features
Species Protection
Water Bodies and Courses
Jubilee Street Development Zone
Introduction
The Jubilee Street Development Zone is the area bounded by
Jubilee Street, Pilkington Street, George Street and the River
Blakewater and also includes Bridge House at the corner of
Jubilee Street and Bridge Street (see Figure 12). The area is the
most advanced in terms of forthcoming development proposals
within the Cathedral Quarter and given issues of heritage and
the wider objectives of the SPD it has been considered that
additional guidance should be provided to balance these issues
and give a greater degree of certainty to the Council, its partners
and key stakeholders, most notably English Heritage. In this
regard the following guidance is provided for the three main
buildings found within this area.
Electricity Works
Located at the corner of George and Pilkington streets, this
two-storey building displays many of the same architectural
Blackburn Cathedral Quarter Supplementary Planning Document
3.3.4
3.3.5
Bridge House
Located at the corner of Bridge Street and Jubilee Street, this
two storey building was constructed above the culverted River
Blakewater as an office for the Blackburn and Over Darwen
Tramways Co. Ltd in the early twentieth century. Characterised
by a hipped slate roof and projecting conical turret at its most
prominent corner, this building is highly visible within the
eastern part of the conservation area and closes an extensive
southerly vista from the junction of Railway Road and The
Boulevard.
The features considered of most value to the Cathedral Quarter
eS
tre
et
Electricity
Works
‘L’ Shaped
building
dg
The ‘L’ shaped structure that fronts on to George Street
and Pilkington Street is considered to be of notable value
and the Council will require that the building is retained
in any development proposal for this area. Any associated
redevelopment and new build associated with this building will
have to be particularly sensitive to the retained structure in line
with the aspirations and design guidance of this SPD, notably
sections 3.2.5 and 3.2.6.
Bridge
House
Jubilee
House
Bri
3.3.3
41
et
e
r
t
S
e
Jubile
Pilkington S
treet
characteristics as the grade II listed former Blackburn
Philanthropic Mutual Assurance Society at 34 Darwen Street. It
too is constructed from red brick and has deeply recessed roundarched windows and a decorated eaves cornice formed from
the same red brick. This building appears to date from the late
nineteenth century and is historically linked to the former gas
and electricity works on Jubilee Street. It also helps to determine
the southern boundary of the conservation area, whilst its scale
and architectural style ensures that it is an important component
of the area’s character.
July 2009
Figure 12. Jubilee Street Development Zone
42
July 2009
are the turreted corner at Jubilee Street and the continuity of
elevations to Jubilee Street and Bridge Street, which the Council
wish to see retained as a minimum. Ideally an active commercial
use would be housed within the retained structure, providing
animation and natural surveillance to adjacent streets.
3.3.6
3.3.7
3.3.8
3.3.9
It is accepted that the western elevation of Bridge Street has
been substantially altered from the building’s original character
and a more flexible approach may be required. This could
involve an extension or annex to the original building subject to
the design principles of the SPD.
A further consideration to any proposals regarding Bridge House
will be culvert that runs below the existing building. In line with
section 3.2.12, prior consent will be required for any proposed
works or structures, in, under and over or within 8 metres of the
edge of the retaining wall / culvert of the River Blakewater.
Jubilee House
Jubilee House was built as an office building during the 1930s
on the site of the former Jubilee Street gas works complex.
Constructed of brown-red brick and moulded faience tiles in an
Art Deco style, the form and design of this building is unique
within the conservation area and as such it is considered notable.
The retention and refurbishment of Jubilee House will be
supported by the Council unless circumstances for demolition
and redevelopment are fully justified as part of an overall scheme
for the Jubilee Street Character Area. The Council will take into
account national and local planning policy, most particularly
PPG 15 and policies HD11 and HD12 of the Local Plan. More
Blackburn Cathedral Quarter Supplementary Planning Document
specifically the Council will consider:
• The overall regeneration benefits of the scheme and its
fit with the aims and objectives of the Blackburn Town Centre
Strategy;
• The economic viability of retaining the existing building;
• The quality of any proposed replacement building in regard to
the design guidance of the SPD and other policy;
• The overall balance of demolition within the Jubilee Street
Character Area and the wider Cathedral Quarter;
• The contribution of demolition to cumulative impacts on
the overall character of the conservation area; and
• The commercial need to create viable development
opportunities within the Jubilee Street Character Area.
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
43
PART 4 – Delivery and Implementation
Introduction
4.1.1
4.1.2
The challenge of this section of the SPD is to draw the proposals
together so that they can be delivered in a cohesive, practicable
4.2.2
and workable manner. In the Cathedral Quarter, it is clear that
implementation will be led by the private sector in partnership
with voluntary bodies and with support from public-sector and
other institutional organisations. This SPD is important in shaping
the type and form of development that will be of most benefit to
Blackburn Town Centre and the wider Pennine Lancashire Subregion.
The Council believes that the Cathedral setting offers the
potential to radically transform this part of the town centre and
create a ‘place’ around which other uses will develop as developer
interest is aroused and values in the future rise. It is, therefore,
important that the design of new buildings and public spaces are
all to the highest quality. By adopting this approach, projects will
establish a design benchmark that schemes in the wider area will
need to adhere to, thus assisting self-sustaining regeneration in
Blackburn Town Centre.
early construction is therefore important to the overall delivery of
the SPD proposals.
Development is likely to take place in the following order:
PHASE 1:
a)
Jubilee Street Zone: development of new youth facilities
in adapted and extended buildings to be retained on the corner
of George Street and Pilkington Street.
b)
Station Interchange Zone: relocation of main bus station
facilities to Penny Street/3 Day Market site and the development
of a more compact Transport Interchange with bus stop facilities
directly outside the Railway Station frontage opposite the station
canopy
PHASE 2:
a)
Cathedral Precinct Zone: development of the first phase
of the Cathedral Masterplan which has already received planning
permission both from the Council and the Cathedrals Fabric
Commission for England, to include Mitre Court and Clergy
Court.
Key Projects – Sequencing and Phasing
4.2.1
A number of key projects have been identified upon which
others depend in order to ensure the successful delivery of the
Cathedral Quarter proposals. These are the relocation of much
of the current Boulevard Bus Station facility and the creation of
a more compact Transport Interchange in front of the Railway
Station and the implementation of the Cathedral Precinct
Masterplan proposals. These projects will both create the space
and the ‘place’ which will attract and enable other projects. Their
b)
Jubilee Street Zone: development of remainder of zone,
to include a new multi-storey car park and an hotel, together
with the refurbishment of the former Tramways/Council offices
located on the corner of Jubilee Street and Bridge Street.
c)
Station Interchange Zone: construction of first office block
on land in part of Boulevard area vacated by bus station.
d)
Public realm/open space enhancements to Boulevard area
44
between new office blocks and the Cathedral Precinct.
PHASE 3:
a)
Cathedral Precinct Zone: development of high-quality
commercial buildings with an active frontage to Darwen Street,
subject to a Design Competition.
b)
Public realm and open space improvements to remaining
part of Cathedral Precinct.
c)
Station Interchange Zone: construction of second office
block on remaining land formerly occupied by bus station.
d)
Cathedral Precinct Zone: new block developed on north
side of Cathedral Precinct to the rear of properties fronting onto
Church Street and Railway Road.
The Funding of Projects
4.3.1
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
The model for the implementation of the Cathedral Quarter
outlined above is dependent upon public sector investment in
the area acting as a catalyst for private sector development. A
major scheme bid has been submitted to the Department for
Transport in respect of funding for the ‘Pennine Reach’ bus-based
rapid transit scheme some of which will be used to provide the
new Transport Interchange facilities in the Boulevard. Many
of the remaining projects are likely to require public sector
intervention, particularly those of a less commercial nature
involving the voluntary sector, e.g. some of the developments
within the Cathedral Precinct, and the implementation of public
realm works and open space enhancements.
4.3.2
There are a number of sources of public sector funding available
to assist such projects. These include:
•
Northwest Regional Development Agency (NWDA):
Projects must be consistent with the Regional Economic
Strategy (RES). The business enterprise/employment nature of
many of the projects in the Cathedral Quarter is supported by
the RES. Moreover, the NWDA has been reviewing its strategic
employment sites and has identified the Quarter as part of an
emerging ‘Knowledge Zone’ linked to Blackburn College. The
Agency has provisionally indicated a willingness to commit
funding to the area subject to a similar commitment by other
public agencies.
•
Homes and Communities Agency (HCA): The HCA is the
national housing and regeneration agency for England having
taken over the functions and assets of English Partnerships (EP)
in December 2008. EP had been working in partnership with
the Borough Council and Blackburn Cathedral Developments in
recent years to secure the revitalisation of the Cathedral Quarter.
This remit has now passed to the HCA and negotiations are
taking place to ensure that this interest is maintained by the
new Agency with a view to attracting its funding and investment
support.
•
Blackburn with Darwen Borough Council: Like many
Councils, Blackburn with Darwen does not have the financial
resources sufficient to tackle all of its regeneration priorities
and is reliant on a range of other sources. However, it can assist
in the delivery of regeneration projects through the use of its
land and property assets. In the Cathedral Quarter, the Council
Blackburn Cathedral Quarter Supplementary Planning Document
has substantial property assets, owning the Jubilee Street Zone,
the existing Boulevard Bus Station and land and property along
the Darwen Street and Church Street frontages to the Cathedral
Precinct. The way in which the Council utilises these assets, e.g.
through straight-forward disposal or in a partnership agreement,
can have a major influence upon the realisation of projects and in
successfully securing of the Vision for the area. In addition, the
Council is supporting the scheme with a substantial contribution
through its capital programme.
•
Lottery Funds: The Big Lottery Fund has given outline
approval for finance to be made available for the development
of the ‘Youth Zone’ facilities on the corner of George Street and
Pilkington Street. Some further specific elements of the Cathedral
Quarter proposals may also be eligible for funding from the
Heritage and Arts Lottery Funds, though funding is likely to
limited in the foreseeable future owing to these funds having
priorities elsewhere.
July 2009
45
July 2009
46
Blackburn Cathedral Quarter Supplementary Planning Document
PART 5 – The Way Forward and Form of Planning Application for Development Proposals
Introduction
5.1.1
This section of the SPD provides guidance for developers
in drawing up proposals for the redevelopment of the key
development sites.
5.1.2
The presumption is for each application to be submitted as
a detailed application with a Design and Access Statement
(see below). Officers will negotiate on the basis of this SPD
and the policies contained within the Blackburn with Darwen
Borough Local Plan, on all proposals prior to submission and will
encourage early discussion between all key stakeholders and
businesses.
Design Statement
5.2.1
Major Applications need to be accompanied by a Design and
Access Statement which should include the following points, as
well as the range of information normally required:
1.
2.
3.
A Vision Statement for the area.
Review of Local Plan Policy, National Planning Policy and
other relevant best practice.
The development process, whether the development is to
be phased.
Character
Surrounding area; building form, massing, architecture, materials
Townscape
What is the identity of the existing site
Views in and out of the site
Public Realm
Boundaries to the site
Welcoming environment
Public and Private open space
Movement and Legibility (Access)
Surrounding street patterns and layouts
Ease of movement for all users including impaired mobility
Sustainability
Secured by Design
Use of sustainable forms of materials, energy use
Diversity
Adaptability of the building/site
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
47
PART 6 - Contacts and Further Information
Forward Planning and Transport Policy- 01254 585356
Development Management -
01254 585960
– be familiar with the relevant planning policy for the site
- be familiar with any relevant SPD’s or SPG’s which apply to the
site
Transport and Parking Strategies, ‘Pennine Reach’ and Public
Transport –
01254 585310
Details of how to request a pre-application meeting are on the Council’s
website at:
Building Control -
01254 844173
www.blackburn.gov.uk/server.php?show=ConWebDoc.30640
Environmental Health -
01254 222517
Site Purchase
Town Centre Regeneration -
01254 688048
Purchase of Council owned sites is through the:
Business Support -
01254 844123
Regeneration and Environment Dept.
Town Hall
King William Street
Blackburn
BB1 7DY
Key stages to submitting a planning application
1.
Select a suitably qualified architect, with experience to deliver a
development to the highest standards. (‘Non architect’ schemes
which produce generic or inappropriate development will not be
acceptable).
T: 01254 585441
Highways and Transportation
2.
Contact the Development Management Team for relevant
planning application forms or go on www.blackburn.gov.uk
This function is carried out by Capita Symonds Ltd. on behalf of the
Council by:
3.
The Council welcomes early discussions with developers. Before
a pre-application meeting is held it would be useful to have the
following:
Capita Symonds
Castleway House
17 Preston New Road
Blackburn
– a clear site area plan and covering letter of the proposals
should be submitted before a meeting is held
T: 01254 273482
48
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
Advice on open space and landscaping can be obtained from:
Service Department Officer
Regeneration and Environment Dept.
Davyfield Road
Blackburn
BB1 2LX
Advice about alterations to water courses should be obtained from
the Environment Agency:
Environment Agency
PO Box 519
South Preston
Lancashire
PR5 8GD
T: 01254 585060
T: 01772 714043
Further detail about water supply, drainage and electricity supply
on site can be obtained from United Utilities from whom consent should
be sought before connections or alterations are made:
United Utilities
Dawson House
Great Sankey
Warrington WA5 3LW 01925 237 000
E: [email protected]
Telecommunications
BT
Telephone House
170-175 Moor Lane
Preston
PR1 1BA
T: 01772 265314
BT New Sites: 0800 731 7208
Information and advice on gas supplies are available from Transco:
Refuse Collection
Transco North West
Spa Road
Bolton
BL1 4SR
Regeneration and Environment Department
Blackburn with Darwen Borough Council
Davyfield Road
Blackburn
T: 01204 545251
T: 01254 585001
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
Network Rail
www.breeam.org
Stephen Nowell
Square One
4 Travis Street
Manchester M1 2NY
Historic Environment
Public Consultation
The Council’s Statement of Community Involvement requires developers
to carry out public consultation in advance of submitting a planning
application. Advice on consultation can be obtained from:
Darren Ratcliffe
English Heritage
Canada House
3 Chepstow Street
Manchester
M1 5FW
Design Review
Development Management or Forward Planning and Transport Policy
Blackburn with Darwen Borough Council
Town Hall
Blackburn
BB1 7DY
Places Matter!
The Tea Factory
82 Wood Street
Liverpool
L1 4DQ
T: 01254 585960 or 01254 585356
Blackburn Cathedral Representatives
BREEAM Assessment
The Dean of Blackburn
Cathedral Offices
Church House
Cathedral Close
Blackburn
BB1 5AA
A list of licensed assessors is available from the Building Research
Establishment:
BRE
Garston
Watford
WD25 9XX
T: 01923 664000
T: 01254 503090
49
50
July 2009
Cathedral Architect
James Sanderson
c/o Cathedral Offices
Fabric Advisory Committee
Chair- Richard Prest
c/o Cathedral Offices
Further Information
Further information about Conservation and Design matters can be
obtained from the Council’s Conservation and Design Officer and
website:
www.blackburn.gov.uk
T: 01254 585846
Other useful links for information are:
www.communities.gov.uk
www.cabe.org.uk
www.buildingforlife.org
www.lancashire.gov.uk
Liability
The Council can accept no liability for any information supplied in
this document and developers are strongly advised to satisfy themselves
as to the situation. All costs of service diversion and new connections
will have to be met by the chosen developer.
Blackburn Cathedral Quarter Supplementary Planning Document
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
51
Glossary
Abbreviation Term
Description
Abbreviation Term
Description
BREEAM
BRE
Environmental
Assessment
Method
Environmental assessment applied to determine a building’s
environmental performance, which sets the standard for best
practice in sustainable design.
HRA
Habitats
Regulations
Assessment
CFCE
Cathedrals
Fabric
Commission for
England
National statutory body which oversees works to cathedrals,
their precincts, and the objects within them.
CfSH
Code for
Sustainable
Homes
New national standard for sustainable design and
construction of new homes, which is used to assess the
sustainability of homes. The sustainability rating is based
upon six distinct levels, which set out different criteria that
new homes will need to achieve. The Code for Sustainable
Homes replaces the EcoHomes assessment.
Assessment of the potential effects of a proposed project
or plan – either a Development Plan Document (DPD) or a
Supplementary Planning Document (SPD) on one of more
sites of international nature conservation value referred to
as Natura 2000 sites. These sites include Special Protection
Areas (SPAs) designated under the EU ‘Wild Birds’ Directive,
Special Areas of Conservation (SACs) designated under
the EU ‘Habitats Directive’ and Offshore Marine Site (OMS).
Ramsar sites designated under the International Wetlands
Convention are also considered as part of the Natura 2000
network.
LB
Listed Building
These are buildings which have historic or architectural
merit and are designated as Listed Buildings to protect these
important features. Listed buildings are subject to more
stringent planning controls.
CAA
Conservation
Area Appraisal
A detailed analysis of the underlying qualities of the
Conservation Area.
LDD
D&A Statement
Design
and Access
Statement
Design and access statements provide the link from general
development principles to final detailed designs. This
statement is prepared to accompany an application to
explain how a proposal has been considered, to ensure that
there is a clear understanding as to what is appropriate and
feasible for the site in its context. It should clearly explain and
justify the design and access principles that will be used to
develop future details of the scheme.
Local
Development
Document
The LDF consists of a ‘portfolio’ of Local Development
Documents which will provide and deliver the spatial
planning strategy. LDDs are likely to comprise a mix of
Development Plan Documents (DPDs) and Supplementary
Planning Documents (SPDs), together with a Statement of
Community Involvement (SCI) and Annual Monitoring Report
(AMR).
LDF
Local
Development
Framework
New system for planning, introduced by the Planning and
Compulsory Purchase Act 2004, which replaces existing
Local Plans currently prepared under the Town and Country
Planning Act 1990 (as amended).
LP
Local Plan
Old style development plan which is being replaced by
Local Development Framework. The Local Plan sets out the
strategic framework for the use of land and contains detailed
policies and specific proposals for development.
Pennine Reach
PENNINEREACH is a proposed dynamic, new bus service
designed to improve the public transport network between
Accrington and Blackburn via Rishton, Great Harwood,
Clayton-le-Moors and Oswaldtwistle and between
Accrington, Blackburn and Darwen.
Planning Policy
Guidance Note
Central Government publication under the old planning
system outlining further guidance and good practice on a
particular planning topic.
DPD
GI
Development
Plan Document
Green
Infrastructure
Part of the ‘portfolio’ of documents which make up the Local
Development Framework. These form the development plan
for the local authority and include the Core Strategy, as well
as Site Specific Allocations.
Green infrastructure is the network of multi-functional open
spaces, woodlands, wildlife habitat, parks and other natural
areas, which sustain clean air, water, and natural resources
and enrich their citizens’ quality of life.
PPG
HMR
Housing Market
Renewal
A government initiative designed to tackle the problems
caused by failure in the private sector housing market in parts
of the Midlands and Northern England.
52
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
Abbreviation Term
Description
PPS
Planning Policy
Statement
Previously known as Planning Policy Guidance Notes these
set out the Government’s land use planning policies for
England under the new planning system. They are a material
consideration in determining planning applications, and
generally supersede development plan policies if they are of
a later date.
SA
Sustainability
Appraisal
A method of assessing a plan to find out whether it is likely
to promote a sustainable pattern of development, and
where possible, avoid or mitigate any significant social,
environmental or economic effects.
SPD
Supplementary
Planning
Document
Part of the ‘portfolio’ of documents which make up the Local
Development Framework under the new planning system.
They provide supplementary information in respect of the
policies in the Development Plan Documents.
SUDS
Sustainable
Urban Drainage
Systems
Systems which are designed to reduce and manage the
environmental impact of surface water run off.
TPO
Tree
Preservation
Order
An order made by a Local Planning Authority in respect
of trees or woodlands. The principal effect of a TPO is to
prohibit the cutting down, uprooting, topping, lopping,
wilful damage, or wilful destruction of trees without the LPA’s
consent.
Use Class
Use Class Order
The Use Class Order categories different types of land use in
to a series of Use Classes which are universally adopted by the
planning profession.
Blackburn Cathedral Quarter Supplementary Planning Document
Appendix 1:
53
Statement of Community Involvement
1.1.1
The planning system has been substantially reformed to embed
community responsive policy-making at its heart and to make
contributing to the achievement of sustainable development a
statutory objective. The new spatial planning system exists to
deliver positive social, economic and environmental outcomes,
and requires planners to collaborate actively with the wide range
of stakeholders and agencies that help to shape local areas and
deliver local services.
1.1.2
Supplementary Planning Documents (SPD) relate to a ”parent”
statutory planning document, in this case the Blackburn with
Darwen Borough Local Plan which was adopted in April 2002.
They are intended to expand upon policy or provide further
detail to policies in the Development Plan Documents but do not
have development plan status. The Blackburn Cathedral Quarter
SPD supplements and recommends changes to the policies of
the adopted Local Plan. It also sets out the parameters against
which any proposals will be assessed to assist in the delivery of
the key aspirations for the area. Following adoption, the SPD
will be a material consideration in the assessment of planning
applications in the area and will also be a consideration in the
preparation of the Local Development Framework.
1.1.3
July 2009
The Blackburn Cathedral Quarter Supplementary Planning
Document (SPD) relates to an area in the southern part of
Blackburn town centre which will be the subject of a number
of regeneration initiatives and projects which will bring about
the renaissance of an area of mixed uses based around the
Cathedral, with considerable potential for further enterprise and
employment development. While some of these proposals are
independent of the SPD and capable of being brought forward
without it in place, the objective of the SPD is to provide more
specific focussed planning guidance for the Cathedral Quarter
based on and supplementing existing statutory policy. It is
therefore important that the views of those who are stakeholders
in the area, and of those with other business, social and
environmental interests in both the Cathedral Quarter and the
wider Borough, are canvassed and where appropriate
reflected in amendments to the draft SPD.
1.1.4
The Town and Country Planning (Local Development) (England)
Regulations 2004 set out the full list of local and national
organisations which must be consulted in preparing SPDs.
This includes representatives of regeneration, environmental
and health interests, service and infrastructure providers and
voluntary and statutory bodies concerned with disadvantaged
groups in the community.
1.1.5
The regulations require the Council, as local planning authority,
to decide which of these might be affected by the Blackburn
Cathedral Quarter SPD and provide appropriate opportunities
and methods for their views to be taken into account. In addition,
adequate provision for the representations of the general public,
and particularly those on whom the SPD proposals might impact,
must be made.
1.1.6
Consultation undertaken in connection with the draft SPD
Recognising this and the value that the knowledge, resources
and information of all stakeholders, landowners, tenants,
residents and employers/employees can contribute to realising
the latent potential of the Cathedral Quarter has meant
that community engagement and consultation has been
fundamental in the production of this SPD. This has been carried
out in a variety of forms:
•
•
•
•
1.1.7
1.1.8
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
54
100 Voices SPD Workshop
Stakeholder SPD Workshop
Town Centre Exhibition
100 Voices Newsletter
•
1.1.9
Places Matter
The draft Supplementary Planning Document for the Blackburn
Cathedral Quarter was approved by the Council’s Executive Board
for consultation purposes on 18th December 2008. A 6-page leaflet
version summarising the key opportunities and proposals was
subsequently prepared in the early part of 2009.
Blackburn Town Centre Neighbourhood Voices came together
on the 19th of August 2008 to comment on proposals for the
Cathedral Quarter and the SPD. The evening was attended by
45 people including local residents and businesses, members of 1.1.10 Copies of the leaflet, together with a response form and a
Blackburn Council and representatives from Maple Grove. The
notification letter were widely distributed to as many properties
results of the workshop are set out in the Blackburn Town Centre
as possible within the draft SPD boundary. This advised property
Neighbourhood Voices Workshop Second event Draft Feedback
occupiers of the draft SPD, the dates of the consultation period and
Report and have been used to inform the development of the
the way in which responses to the draft SPD could be made. The
SPD.
draft SPD and accompanying Sustainability Appraisal was available
to view in the following locations from the 16th February 2009 to
On the 21st of August 2008 a range of stakeholders were invited
16th March 2009:
to a similar event. A record of the main issues and comments has
informed this document. The event comprised representatives
•
Town Hall, King William Street, Blackburn
from:
•
Blackburn Visitor Centre, Church Street
•
Darwen Town Hall
•
Blackburn Cathedral
•
Network Rail
1.1.11 Copies were distributed to approximately three dozen national
•
Northern Rail
and local organisations already on the Council’s Development
•
Telereal
Plan database. Interested parties already on the Council’s contact
•
Lancashire Constabulary
database from earlier consultation and correspondence were also
•
Environment Agency
sent a copy of the leaflet, response form and notification letter.
•
Lancashire United Ltd / Transdev
Councillors for all of the Borough’s wards were each sent a copy of
•
Stagecoach North West
the leaflet and copies of the full draft SPD were made available in
•
Cathedrals Fabric Commission for England
each party group room. The draft SPD, Sustainability Appraisal and
•
English Partnerships
on-line response form were available on the Council’s website. The
•
Elevate East Lancashire
four week period of public consultation was from 16th February
•
Design and Heritage Pennine Lancashire
to 16th March 2009. Briefings were also given to the Executive
Blackburn Cathedral Quarter Supplementary Planning Document
Member and Lead Members for Regeneration.
1.1.12 A total of 15 responses were received on the consultation
draft. Full details are provided in the Schedule attached. Many
respondents were broadly supportive of the SPD and the overall
vision. Detailed comments are set out in the following pages.
1.1.13 These issues have been taken into account in preparing the final
Supplementary Planning Document for the Blackburn Cathedral
Quarter. A schedule which summarises all comments received,
together with the Council’s response and the action being taken,
is attached. The following schedule lists all organisations who
were sent a copy of either the full draft Supplementary Planning
Document or the summary consultation leaflet:
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
4NW
Arts Council England NW
Blackburn Cathedral Chapter
Blackburn Cathedral Developments
Blackburn Chamber of Trade
Blackburn Civic Society
Blackburn with Darwen Disabled Access Group
CABE
Cathedrals Fabric Commission for England
Daniel Thwaites Plc
Design and Heritage Pennine Lancashire
Elevate East Lancashire
English Heritage
Environment Agency
Gifford
Government Office for the North West
Homes and Communities Agency
July 2009
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
Jones Lang LaSalle
Lancashire Constabulary
Lancashire Telegraph
Natural England
Network Rail
Northern Rail Ltd.
NWDA
Paul Butler Associates
Places Matter!
Rossendale Transport Ltd.
Stagecoach North West
Steven Abbott Associates
Telereal
Transdev / LUL
The Mall Corporation
Twentieth Century Society
Victorian Society
Wm. Morrison Supermarkets Plc
55
56
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
Comments
Action Required
Government Office North West (GONW)
The document does not make specific reference to
the policies that it is supplementing. In general the
text only references the Local Plan Policies but there is
no reference to the policies in sections relating to the
Development Zones or Design Guidance.
The strategic and local policy context is reviewed in section 1.3 of the document, but it is acknowledged that
the development guide and design guide sections of the report do not make specific reference to the Local Plan
policies.
It is accepted that when the LDF is introduced the SPD will need to be revisited and reviewed accordingly.
There is a need for further clarity on the planning process Need to cross reference to the Conservation Area Appraisals and Design Guidelines produced by Paul Butler
Associates to demonstrate the design / conservation principles that development will need to adhere to.
as when the LDF is introduced the SPD will not be able
to be carried forward so will need to be reviewed and
revised accordingly.
Paragraph 3.2.5 – it is unclear what the second bullet
adds to paragraph I of Policy HD11 (Development in
and adjacent to Conservation Areas). There is a need for
clarification as to how the SPD will deliver imaginative,
well designed and sustainable mixed use development,
sensitive to Cathedral setting.
There is a lack of information on the source and
availability of documents referred to in the SPD.
Information needs to be included setting out who
produced relevant documents, when they were
published and where they can be accessed from.
An appendix will be added setting out further details of all documents referred to within the SPD.
Paragraph 0.3.2 – there is a need for a fuller explanation
with regards to the Statement of Community
Involvement (SCI).
Given the document’s status as a consultation draft, the additional level of detail on the consultation process was
intended to be incorporated within the final draft SPD.
The existing Appendix 1 will be supplemented with further information with regards to the recent consultation
process.
It is recommended that a glossary of terms and
abbreviations is included for clarity.
It is agreed that a glossary would assist the reader and provide clarity on the terminology used within the document.
An appendix will be added to provide clarity on all the terminology referred to within the SPD.
Blackburn Cathedral Quarter Supplementary Planning Document
Comments
July 2009
57
Action Required
Reference needs to be made to the Sustainability
In paragraph 0.3 the document does make a brief reference to the fact that a Sustainability Appraisal has been
Appraisal, its role and how it has been used to inform the prepared but it is agreed that this element of the document should been strengthened to explain the role of the SA
production of the SPD.
and how it has specifically influenced the SPD.
The text in part 1 of the SPD will be expanded upon to demonstrate how the SA has influenced the SPD, drawing out
some of the key recommendations to emerge from the SA.
Part 1 of the guide already sets out some important background information and paragraph 1.1.2 defines the SPD
There is a need to expand the text relating to
objectives.
background information i.e. the specific issues that the
SPD will need to address. The SA is suggested as a useful
point of reference.
The SPD will be related more closely to the SA and will draw out the more specific issues that the SPD will need to
address.
There is a need for a detailed explanation regarding how
the boundary for the SPD was determined
The boundary for the SPD was initially established through the brief for the competition for the Cathedral Quarter
masterplan. This boundary was arrived at following preparation of the Cathedral Precinct Masterplan, as it was
recognised that there were increased opportunities which if brought forward would help to realise the potential of
the wider Cathedral Quarter.
Paragraph 0.2.2 will be expanded upon to explain how the boundary for the SPD was defined.
There is a need for greater use of photographs / sketches
to illustrate aspects of design. All photographs should
be accompanied by captions.
It is recognised that selected imagery included within the initial draft SPD was inappropriate and could be used to
greater effect to demonstrate design aspects. More appropriate imagery will be selected and existing images will
be reviewed and replaced where necessary.
It is suggested that annotated plans would be useful to
highlight or emphasis features referred to in the text. All
plans should include street names, key buildings, key
and north arrow.
All plans will be clearly annotated to ensure that plans are easy to interpret for the reader.
Natural England
Disappointing that there is little mention of
incorporation of Green Infrastructure (GI) which can
contribute to so many benefits for sustainability –
reference should be made to guidance in North West
Green Infrastructure Guide. Important to adopt some of
the principles embodied in the GI approach.
Reference will be made to the North West Green Infrastructure Guide and part 3 of the document will be amended
to reflect consideration of green infrastructure principles
58
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
Comments
Action Required
Reference should be made to section of Lancashire
Biodiversity Action Plan which refers to urban habitats.
National biodiversity policies are also important. The
Biodiversity Duty requires Councils to have regard to
biodiversity.
Reference will be made to the Lancashire Biodiversity Action Plan in table 1.
Need to reflect and illustrate how the SA has informed
the SPD.
Part 1 of the guide already sets out some important background information and paragraph 1.1.2 sets out the SPD
objectives.
The SPD will need to relate more closely to the SA and
draw out more the specific issues that the SPD will need to address.
English Heritage
Would benefit from a pull out larger map with street
names and places. The SPD has not been adequately
placed in the context of wider town centre (movement
patterns and regenerative benefits / linkages)
Figure 2 shows the Cathedral Quarter within its Town Centre context. Will consider making this larger and
incorporating further detail as necessary.
Reference to the maximum number of floors for each
block on p28 is considered inappropriate and too
ambiguous.
Remove figure 9. Provide more specific detail under the section Views, vistas and enclosure.
We advise that key views of the Cathedral from outside
the SPD area should be identified and protected in line
with our comments on the SA/SEA draft scoping report.
Will provide an additional views analysis plan from outside the SPD area.
Commitment to hold a design competition (in respect
Para 3.2.3 second bullet point will be amended to include that a specific brief for this phase of development will be
of development to face the Cathedral) is not mentioned drawn up by BwDBC, the developer and CABE.
in SPD. EH would be pleased to support BwDBC and the
developer it the formation of a suitable competition brief
for this phase of development.
The SPD is lacking in methodologies and processes to
promote grain, animation, intimacy and specifically
cultural and arts activity within the cathedral quarter
Para 3.2.1 (1st, 3rd, 4th and 8th bullet point) and para 3.2.9 mention how a mix of activity generating uses can
promote animation. Will consider how the Cathedral Precinct can also accommodate public art and spaces for
cultural activity.
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
59
Comments
Action Required
A figure ground map would be useful to illustrate the
current poor edge definition and leakage of public open
space.
A figure ground plan is provided on p27 (figure 8) but will be annotated to illustrate where the main changes in the
area’s historic fabric have occurred.
It would be useful to refer to NWDA’s Creating
Inspirational Spaces document on p12, there are
also a number of appropriate CABE and CABE Space
documents that could be inserted in your table.
Will include Creating Inspirational Spaces within Table 1 and other documents as necessary.
Figure 6 on p22 is not very convincing in isolation from
Maple Grove indicative layout plans. Why not include
the less design specific yet space defining layout plans
(at a small scale).
Will amend as per comments.
Section 3.2.5 is not precisely clear or explicit and could
usefully be supplemented. The definition of the area’s
local distinctiveness and particularly the area’s broken
and articulated roofscapes might usefully be mentioned.
We are not convinced the benchmark images used on
p30 each reflect the language used within the text.
Section 1.2 appraises the special character of the Cathedral Quarter and will be amended to include reference to
articulated roofscapes. Section 3.2.5 will be bolstered with more explanation and better imagery.
The section referring to demolition of buildings should
follow government guidance set out in PPG15.
Will reflect and check on section 3.2.6 in regards to PPG 15.
We acknowledge that in order to achieve an extended
Cathedral Precinct that the listed wall, railings and
possibly Victoria statue may be affected by change, we
advise that the heritage, landscape and archaeological
impacts could usefully be identified and potential
mitigation processes set out within the SPD.
Section 3.2.6 will be revised to reflect on these comments.
Environment Agency
Paragraph 1.3.7 – there is no direct reference to local
flood risk policy. Policy ENV 2 ‘Flood Protection’ needs to
be identified.
It is acknowledged that this policy has been omitted from the list of Local Plan policies referred to in paragraph 1.3.7.
The document will be amended to incorporate this additional policy.
60
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
Comments
Action Required
Paragraph 2.2.11 – the watercourse should be used as
an asset and retained as a feature of any development
proposal. This should be promoted in paragraph 2.2.11
with new development creating opportunities for new
open space and an enhanced riverside environment.
Paragraph 2.2.11 will be amended to reflect these concerns.
Paragraph 3.2.7 – there is no reference to Sustainable
Drainage Systems. Methods such as porous paving
should be encouraged. In this context it is suggested
that the paragraph is amended to reflect SUDS as a
potential option in the SPD.
The design guide section will be reviewed and reference will be made to reflect SUDS in the section containing the
Sustainable Design principles detailed in part 3 of the document.
Paragraph 3.2.12 – strong concerns expressed regarding
the wording of the section referring to the EA easement
as in its current form. Need to replace text in paragraph
3.2.12 with ‘Under the terms of the Water Resources Act
1991 and the Land Drainage Byelaws, the prior written
consent of the Environment Agency is required for any
proposed works or structures in, under, over or within 8
metres of the edge of the retaining wall/culvert of the
River Blakewater. Developers cannot assume that our
consent will be forthcoming, and must therefore contact
the Environment Agency at their earliest opportunity to
discuss site specific proposals’.
The guidance in part 3 relating to the River Blakewater will be revised to reflect these concerns, replacing paragraph
3.2.12 with the recommended text.
Given the flood risk issues, any redevelopment of a site
in this area would need to satisfy the requirements of
PPS25, including the Sequential and Exception Tests.
Contact with the Environment Agency to discuss flood
risk should be included as an advisory note with the SPD.
Northwest Regional Development Agency
It is important to seek the views of ‘Places Matter’ for
advice on design and the promotion of high quality
urban landscapes. Reference to Places Matter – Creating
Inspirational Spaces should be included in Table 1 on
page 12.
It is recognised that Places Matter will be an important body to consult and for that reason their views have been
sought on the initial draft of the SPD. Table 1 will be updated to reflect Places Matter –
Creating Inspirational Spaces.
Blackburn Cathedral Quarter Supplementary Planning Document
Comments
July 2009
61
Action Required
Places Matter!
There is a need to understand and illustrate in the
document how the Cathedral Quarter fits in with the
rest of Blackburn, clarifying the connections with
surrounding areas. There is a need for a general
overview plan that describes routes, views, landmarks
etc. and connections through the area.
It is agreed that a general overview plan would assist the reader. There are a number of high level views which
should be reflected on this plan. These include the views gained from the railway platform, the canal tow path
and on account of the change of level, important views can be gained from behind the cinema. Figure 2 will be
revised to clearly illustrate how the Cathedral Quarter connects to surrounding areas. In particularly the Mall will be
indicated on this plan and the proposed market site redevelopment for the new bus station will be shown. Rather
than producing a separate plan as suggested, figure 2 will also be used to indicate key landmarks, views etc. and the
shading will be removed from this plan to ensure that it does not obscure from the identified features.
Document should be better structured to ensure user
friendly document. Development Zone Guide diagrams
lack cohesiveness and have too much information in the
key. A larger diagram incorporating all 3 development
zones was suggested as splitting out the development
zones fails to give a good overview of the aspects of
the entire area. Beneficial to demonstrate the hierarchy
of such issues in a series of diagrams, distinguishing
between glimpsed views and significant or key views.
Development Zones will be removed and other diagrams and text used to convey the same principles.
Figure 10 should be revised to incorporate other
buildings which are worthy of retention but which have
not been identified e.g. historic warehouse building.
In terms of figure 10, the Conservation Area appraisals clearly established what buildings and features were of
historic and architectural value. Figure 10 will be amended to include the listed railings, Cathedral gateway at the
top of Church Street and the Old Bank listed building on Darwen Street.
More historic plans of the area should be included as
figure ground plans to demonstrate how townscape
features have been damaged.
Rather than including additional historic plans, figure 8 will be annotated to illustrate where the main changes in the
area’s historic fabric have occurred. This will pick up on the fact that Church Street is now set back considerably from
its original form. At present there are elements of the 2008 urban grain which have been omitted from this plan and
will therefore be amended in the revised draft of the SPD.
There is no diagram analysing pedestrian movement or
how the area relates in movement terms to the leisure
offer. A diagram illustrating the hierarchy of streets
in the area would be especially useful and should be
incorporated. It is essential that the SPD demonstrates
how people move through, into and around the area.
It is agreed that there needs to be a plan illustrating how people move through, into and around the area.
Figure 6 (Sense of Place) will be revised to incorporate these suggested changes.
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Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
Comments
Action Required
There is a conflict in the document in terms of identifying Reference to building heights on figure 9 will be removed and the guide will advise that no development is built
key views and proposing new development. Views from higher than the Cathedral Eaves.
the Cathedral in addition to those of the Cathedral need
to be considered.
Whilst recognised that there are aspirations to extend
the green of the Cathedral into the public realm to the
east of the Cathedral this seems to be poorly defined in
the SPD. The SPD should explore the possibility of new
buildings to the east of the interchange square to help
enclosure and provide the opportunity for a new green
public space. The station interchange zone should be a
celebrated arrival point.
It is acknowledged that the green of the Cathedral should extend into the public realm and accepted that at present
this issue is poorly defined in the SPD. Figure 6 will be amended to reflect these concerns.
Suggested whether the table 1 be included as an
appendix.
A broad overview of the strategic and local policy context will be included in section 1.3 and table 1 listing the
planning documents, programmes and strategies will be included as an appendix. As the text throughout the SPD
will be related explicitly to the Local Plan policies, further detail explaining the specific policies listed in paragraph
1.3.7 will be incorporated in the form of a table.
Consideration should be given to indicate new public
realm materials.
Landscape Projects have produced a landscape and public realm strategy for Blackburn Town Centre which sets out
general principles and guidance on the choice of materials.
Reference will be made in part 3 to the guidance contained within the landscape and public realm strategy
produced for the Town Centre.
An implementation section is needed to outline how
the publicly funded elements of the scheme are to be
phased, a maintenance and management plan included
and areas of flexibility should be clearly identified.
It is agreed that an implementation section would be of considerable value to the document.
An additional section will be added to the SPD containing information in relation to the funding of projects and
suggested sequencing of projects. The Freckleton Street SPD will be used as a point of reference.
Blackburn Cathedral
Concern raised that zoning plans may be mis-interpreted The plans will be revised.
as indicating areas of comprehensive new build.
Guidelines for the design of new buildings and their
massing are weak, particularly in relation to the zones
shown in figure 9 and the accompanying text.
Indicative building heights will be removed and the policy section of the document will be strengthened.
Some of the view corridors are too narrowly drawn and
do not fully represent the significant view from the
railway station building towards the Cathedral.
Figure 7 represents the same view corridors established in the Cathedral’s own masterplan, therefore this will not be
revised.
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
Comments
Action Required
The document needs to offer a flexible framework
to allow appropriate responses to commercial and
government-led initiatives.
Noted
Para 0.2.2 – the southern boundary is defined by George
Street and the western boundary includes Pilkington
Street.
Paragraph 0.2.2 will be revised to reflect these new boundaries.
Will consider how the Cathedral Precinct can also accommodate public art and spaces for cultural activity.
Para 1.3.10 – suggest further bullet point is added to
read ‘Enhance the role of the Cathedral in social cohesion
and spiritual leadership, and as a centre of excellence for
the arts.
Para 2.2.6 – suggest further bullet point is added to
read ‘to improve inter connectivity but maintain choice,
particularly for those with mobility problems, to retain
and improve car/taxi drop-off facilities’. Provision
for drop-off by private car users also needs to be
incorporated.
This paragraph sets out the key features of the new bus interchange and would therefore not be appropriate to
include supplementary bullet points as part of this paragraph.
Various text amendments
Will amend as comments.
Need for better exemplar photographs or images on
page 23. Suggested that the computer generated
image on page 25 should be removed as the quality of
the new building shown is very poor. More appropriate
case studies illustrating positive and negative examples
include Bristol, Coventry and Birmingham. Oxford
and Cambridge cited as good examples of modern
architecture alongside historical buildings, including the
use of high quality and appropriate materials.
Photographs on page 30 are inappropriate and do not
represent good quality design.
Pages 37, 38 and 39 should be supplemented by
photographs from the Cathedral masterplan to aid
understanding of the diagrams.
The existing images will be replaced by more appropriate photographs, drawing particularly upon the example of
Princesshay in Exeter.
Clergy Court has been approved as 5 storeys and Mitre
Court as 6 storeys.
Noted.
63
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Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
Comments
Action Required
Figure 11 needs to be full page in size for clarity of
reading.
Figure 11 will be enlarged to fit a full page of the document.
Elevate East Lancashire
Concern that there is a lack of specific detail regarding
how the SPD will actually be delivered. More detail
should be included relating to delivery, timescales and
risks etc.
An additional section will be added to the SPD containing information in relation to the funding of projects and
suggested sequencing of projects. The Freckleton Street SPD will be used as a point of reference.
Blackburn Chamber of Trade
Comments relate to the proposed closure of Railway
Road and the impact on retailers along Darwen Street.
The Council understand the concerns raised but such issues do not fall within the scope of the SPD and will be dealt
with through other means i.e. the Town Centre Transport Strategy.
Morrison’s
Comments relate to the proposed closure of Railway
Road and the impact on retailers.
The Council understand the concerns raised but such issues do not fall within the scope of the SPD and will be dealt
with through other means i.e. the Town Centre Transport Strategy.
Hobkirk Sewing Machines Ltd.
Comments relate to the proposed closure of Railway
Road and the impact on independent retailers along
Darwen Street.
The Council understand the concerns raised but such issues do not fall within the scope of the SPD and will be dealt
with through other means i.e. the Town Centre Transport Strategy.
Private individual
Need to enhance the offer of the evening economy.
Need to enhance perception of safety especially in the
evenings.
The SPD will encourage a mix of uses for the Cathedral Quarter including leisure development, which it is hoped will
strengthen and promote the evening economy.
Private individual
Need to tackle issues of litter and anti-social behaviour.
Comments noted.
Private individual
Need to consider measures which focus upon enhancing The SPD will encourage a mix of uses for the Cathedral Quarter including leisure development, which it is hoped will
the offer of the evening economy.
strengthen and promote the evening economy.
Blackburn Cathedral Quarter Supplementary Planning Document
Comments
July 2009
Action Required
Private individual
Comments relate to the Blackburn Boulevard and the
need to create a central building with improved facilities
for public transport users.
Need for a better interchange to link to the railway
station.
As part of the Pennine Reach scheme, the market site is being looked at to see if it can accommodate the bus
station.
65
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Blackburn Cathedral Quarter Supplementary Planning Document
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Appendix 2: Summary of Changes from Sustainabilty Appraisal
2.1.1
2.1.2
2.1.3
and additional party wall/floor insulation in order to ensure that
noise generated from commercial premises does not exceed a
Noise Rating of NR25 in dwellings.
The Sustainability Appraisal confirms that implementation
of the Cathedral Quarter SPD will generate a number of
sustainability benefits. Generally the SPD performs well against
the SA objectives and will have positive long term effects
for sustainability. As the SPD has progressed through the
relevant stages of plan preparation the results of the SA have
been suitably integrated to inform production of the SPD and
the final SPD has appropriately incorporated some of the key
recommendations of the SA.
•
Introduce design guidance related to the siting of storage
and refuse areas, to minimise any associated noise and odour
impacts on sensitive uses such as residential development.
•
Undertake improvements which seek to enhance the
quality and function of existing open space.
As highlighted through the SA, whilst there are a number of
individual elements of the SPD that are acknowledged as being
positive, it is important to consider the relationships between the
different land uses proposed, as when combined and considered
cumulatively they create significant positive impacts. To ensure
that these significant positive impacts are able to be secured,
one of the key recommendations of the SA was to ensure that
developments were carefully designed, phased and their delivery
appropriately timed. As a result this prompted the need for
inclusion of an implementation section within the SPD.
•
•
Implement traffic calming measures to reduce the speed
of traffic through the area.
•
Undertake improvements to improve the efficiency of the
transport interchange.
•
Introduce design guidance related to the design quality of
new development.
Although the SA highlighted a number of positive impacts of the
SPD, it also revealed a number of potential negative impacts that
could arise, although as confirmed in the SA report the majority
of these potential impacts can successfully be mitigated against.
As a result the recommended mitigation measures which are
listed below have been incorporated into the final SPD.
•
Encourage replication of traditional detailing in
new development where appropriate and ensure careful
consideration is given to the choice of materials to ensure that
new development is complementary to its surround.
2.1.4
•
Introduce design guidance requiring commercial
development to consider measures such as insulating of the
façade of the commercial premises, ensuring doors are kept
closed, introducing mechanical ventilation and air conditioning
Instigate wider investigation into the highway network.
As the SA process has closely informed the preparation of the
SPD, it has helped to ensure that the SPD is the most appropriate
means to help realise the Council’s long term aspirations for
the Cathedral Quarter and deliver sustainable change, which
respects its special historic and architectural character.
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
67
Appendix 3: Spatial Planning Documents, Programmes and Strategies
NATIONAL
Securing the Future Delivering UK Sustainable Development Strategy (H.M. Government,
The Stationery Office)
Planning (Listed buildings and Conservation Areas) Act 1990 (Department of the
Environment)
http://www.defra.gov.uk/sustainable/government/publications/uk-strategy/
http://www.england-legislation.hmso.gov.uk/si/si1990/Uksi_19901519_en_3.htm
Sustainable Communities Plan Building for the Future (ODPM)
Better Places to Live by Design: A Companion Guide to PPG3 (ODPM)
http://www.communities.gov.uk/publications/communities/sustainablecommunitiesbuilding
http://www.communities.gov.uk/publications/planningandbuilding/betterplaces
PPS1: Planning Policy Statement 1: Delivering Sustainable Development (Department of
Communities and the Local Government)
PPS 12: Planning Policy Statement 12: Creating strong, safe and prosperous
communities through Local Spatial Planning (Communities and Local Government)
http://www.communities.gov.uk/publications/planningandbuilding/planningpolicystatement1
http://www.communities.gov.uk/publications/planningandbuilding/pps12lsp
PPS 3: Planning Policy Statement 3: Housing (Communities and Local Government)
PPS 6: Planning Policy Statement 6: Town Centres (Communities and Local Government)
http://www.communities.gov.uk/publications/planningandbuilding/pps3housing
http://www.communities.gov.uk/publications/planningandbuilding/pps6
PPS 9: Planning Policy Statement 9: Biodiversity and Geological Conservation (ODPM)
PPG 13: Planning Policy Guidance 13: Transport (ODPM)
http://www.communities.gov.uk/publications/planningandbuilding/pps9
http://www.communities.gov.uk/publications/planningandbuilding/ppg13
PPG 15: Planning Policy Guidance 15: Planning and the Historic Environment
(Department of the Environment)
PPG 16: Planning Policy Guidance 16: Archaeology and Planning (Department of the
Environment)
http://www.communities.gov.uk/publications/planningandbuilding/ppg15
http://www.communities.gov.uk/publications/planningandbuilding/ppg16
PPG 17: Planning Policy Guidance 17: Planning For Open Space, sport and Recreation
(ODPM)
PPS 25: Planning Policy Statement 25: Development and Flood Risk (Communities and
Local Government)
http://www.communities.gov.uk/publications/planningandbuilding/
planningpolicyguidance17
http://www.communities.gov.uk/publications/planningandbuilding/pps25floodrisk
Building In Context: New Development in Historic Areas (CABE and English Heritage)
A Historic Environment: A Force for Our Future (Department for Culture, Media and Sport)
http://www.cabe.org.uk/publications/building-in-context
http://www.culture.gov.uk/reference_library/publications/4667.aspx/
Power of Place – The Future of the Historic Environment (English Heritage)
Heritage Counts North West (English Heritage)
http://www.english-heritage.org.uk/server/show/nav.001002005002001
http://www.english-heritage.org.uk/hc/server/show/nav.10739
Planning for Town Centres: Guidance on Design and Implementation Tools (Communities
and Local Government)
Guidance Note 4 - Procedures For Major New Developments at Cathedrals (Cathedrals
Fabric Commission For England (CFCE))
http://www.communities.gov.uk/publications/planningandbuilding/planningtown
http://www.cofe.anglican.org/about/cathandchurchbuild/cathedralsguidance/index.htm
Biodiversity Strategy for England (Defra)
http://www.defra.gov.uk/wildlife-countryside/biodiversity/action-uk/e-biostrat.htm
68
REGIONAL
July 2009
Making It Happen: The Northern Way - Creating Sustainable Communities in the North
West
Blackburn Cathedral Quarter Supplementary Planning Document
The North West of England Plan Regional Spatial Strategy to 2021
http://www.gos.gov.uk/gonw/Planning/RegionalPlanning/
http://www.communities.gov.uk/publications/citiesandregions/creatingsustainablenorth
Northwest Regional Economic Strategy 2006
Creating Inspirational Spaces 2007 (Places Matter)
http://www.nwda.co.uk/publications/strategy/regional-economic-strategy-200.aspx
http://www.placesmatter.co.uk/programmes/creating-inspirational-spaces
Streets for All: North West (English Heritage)
Lancashire Biodiversity Action Plan, particularly Urban Habitat Plans 2008
http://www.english-heritage.org.uk/server/show/nav.10765
http://www.lancspartners.org/lbap/urban_habitat.asp
Elevate East Lancashire Strategic Plan.
North West Green Infrastructure Guide 2008 (North West Green Infrastructure Think
Tank)
http://www.elevate-eastlancs.co.uk/main/Library/Downloads
http://www.greeninfrastructurenw.co.uk/resources/GIguide.pdf
Lancashire Economic Strategy
http://www.lancashire-ep.org.uk/html/strategic_activity/les.php
LOCAL
Blackburn with Darwen Local Plan
Blackburn with Darwen Housing Strategy 2005 – 2008
http://blackburn.devplan.org.uk/document.aspx?document=17&display=contents
http://www.blackburn.gov.uk/upload/pdf/Housing_Strategy_2005_-_2008.pdf
Blackburn Town Centre: Investing in the Future – Blackburn Town Centre Strategy for
2003 – 2008
Blackburn Design Guide SPD and associated Blackburn with Darwen Colour Study
http://www.blackburn.gov.uk/server.php?show=ConWebDoc.25718&setPaginate=No
http://www.blackburn.gov.uk/server.php?show=ConWebDoc.1228
A plan for the future of Blackburn Town Centre
Blackburn with Darwen Borough Council Local Transport Plan 2 2006 - 2011
http://www.blackburn.gov.uk/upload/pdf/03968_REG_BBTownCent_Lft_v6.pdf
http://www.blackburn.gov.uk/server.php?show=ConWebDoc.22943&viewPage=2
Blackburn Town Centre Parking and Transport Strategy (Consultation Document)
http://www.blackburn.gov.uk/upload/pdf/Final_document_-_transport_and_parking.pdf
Blackburn Cathedral Quarter Supplementary Planning Document
July 2009
69
Appendix 4: Principal Planning Policies of the Blackburn with Darwen Borough Plan (April 2002)
Local Plan Policy
Title
Explanation
Policy URB1
Urban Boundary
Defines the Urban Boundary of the Borough, as shown on the Proposals Map, within which
development will be concentrated.
Policy ENV2
Flood Protection
Restricts development that would increase the risk of flooding or be at risk of flooding. Also
ensures adequate access is given to watercourses.
Policy HD1
Visual Appearance of Development – General Considerations
Sets general design principles for new developments in relation to criteria such as external
materials, mass and height of buildings and townscape.
Policy HD2
Protection of Important Public Views
Restricts development which either obscures the public view of important buildings or
intrudes into/onto important open areas.
Policy HD3
Access for All
Provides guidance on the design of developments to provide suitable external access and
facilities for people with reduced mobility.
Policy HD5
Crime Prevention
Provides guidance on the design of developments for the creation of safe and secure
environments.
Policy HD6
Energy Conservation
Provides guidance on the conservation and efficient use of energy for new developments.
Policy HD8
Existing Trees and Landscaping
Provides guidance on the protection of existing trees and landscape in relation to new
developments.
Policy HD9
New Trees and Landscaping
Sets criteria for the incorporation of appropriate landscape treatment for new built
development.
Policy HD10
Public Art
Provides guidance for the creation and / or integration of works of art or craft into
developments to contribute to their enhancement. This includes the use of thresholds to
determine those schemes for which opportunities of public art will be sought.
Policy HD11
Development in and adjacent to Conservation Areas
Applies to the whole SPD area which is a conservation area. Sets principles for development
in or adjacent to conservation areas in relation to townscape criteria such as standard of
design and encroachment.
Policy HD12
Alterations to Unlisted Buildings in Conservation
Areas
Applies to the whole SPD area which is a conservation area. Sets principles for alterations to
unlisted buildings.
Policy HD13
Alterations to Listed Buildings
Sets criteria for alterations to listed buildings which are described in paragraph 1.2.14.
Policy HD14
Demolition of Listed Buildings and Demolition of
Unlisted Buildings within Conservation Areas
Applies to the whole SPD area which is a conservation area. Sets criteria for the demolition of
listed buildings and demolition of unlisted buildings within conservation areas.
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Blackburn Cathedral Quarter Supplementary Planning Document
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Local Plan Policy
Title
Explanation
Policy HD17
Locally Important Archaeological Remains
Applies to paragraphs 1.2.15-1.2.16 of the SPD. States the circumstances under which
planning permission would be granted for development that will have an unacceptable
effect on remains of local architectural value.
Policy HD18
Archaeological Evaluation, Excavation, Recording,
Removal and Preservation
Applies to paragraphs 1.2.15-1.2.16 of the SPD. States the circumstances under which a
planning application would require an archaeological assessment or evaluation to be
submitted as part of a planning application. Sets out the circumstances under which in-situ
preservation is justified or not.
Policy H2
Development of Large Unallocated Sites
Sets the criteria under which large unallocated sites (defined as 10 or more dwellings or 0.4
hectares or greater) for residential development will be permitted.
Policy H4
New Residential Development
Sets the criteria under which proposals for new residential development will be permitted,
including visual appearance, townscape and transport guidance.
Policy R1
Retail Development in Blackburn Town Centre
Sets the criteria under which retail development will be permitted in Blackburn Town Centre
including the allocation of sites.
Policy R10
Restaurants, Cafes and Hot Food Take-Aways (Use Class
A3)
Part 1i and part 2a of this policy apply to the SPD area. 1i and 2a state that permission will be
granted for Blackburn Town Centre with no hours condition imposed providing there is no
significant effect on residential amenity.
Policy R11
Use of Upper Floors and Basements
States that within Town Centres (which includes the SPD area), the use of upper floors and
basements for non-retail uses appropriate to the centre will be acceptable provided that
access to the proposal does not result in any loss of ground floor space or street frontage
which would prejudice the future use of the ground floor or does not conflict with any other
policy or proposal in the Plan.
Policy T1
Public Transport – Bus Services
Encourages greater use of public transport, particularly buses by measures such as a bus
priority programme, and possible incorporation of bus routes into developments plans.
Policy T2
Public Transport – Rail Services
Encourages greater use of rail as a means of travel. With regard to the SPD area the policy
seeks improved access to Blackburn Station as a high quality interchange, and with bus
services in the adjoining Boulevard Bus Station.
Policy TRL3
Tourism and Commercial Leisure Development in the
Urban Area
Sets the criteria under which tourism or commercial leisure development, including hotels
and conference facilities will be permitted in Blackburn Town Centre as defined on the
Proposals Map.
Policy EC8
Site Consideration Policy
Sets the criteria under which business and industrial development will be permitted
including amenity impacts, transport infrastructure and design layout.
Blackburn Cathedral Quarter Supplementary Planning Document
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71
Local Plan Policy
Title
Explanation
Policy BTC6
Darwen Street / Blackburn Cathedral Precinct
This policy identifies specific uses which will be acceptable on sites within the SPD area. This
includes the former Palace Theatre Site, Boulevard/Jubilee Street (now B.T. car park) and
adjoining Telephone Exchange building. Possible uses include business, housing, leisure and
institutional uses.
Policy BTC9
Environmental Improvement
The following areas in the SPD area are identified for comprehensive programmes of
environmental works to the public area and streetscape: Church Street, Darwen Street and
Blackburn Cathedral Precinct.
Blackburn Cathedral Quarter Supplementary Planning Document
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72
Blackburn with Darwen Borough Local
Plan Proposals Map
Town Centre Boundary
Policy R1
Proposed Orbital Route
Conservation Area
Policy HD11
Environmental Improvement
Corridors Policy ENV6
Environmental Improvement
Street Policy BTC9
Environmental Improvement
Areas Policy BTC9
Development Opportunities
Policy BTC1-8
Primary Shopping
Frontages Policy R3
Secondary Shopping
Frontages Policy R4
Mixed Use Policy EC6
Greenspace Corridors
Policy LNC4
Blackburn with Darwen Borough Local Plan Proposals Map
Blackburn Cathedral Quarter Supplementary Planning Document
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73
For further information please contact:
Forward Planning and Transport Policy Group
Regeneration and Environment Department,
Town Hall,
Blackburn
BB1 7DY
Tel: 01254 585356
Email: [email protected]