(See Diagram 2)
The City Council owns the disused former bus garage, the former swimming baths and sports centre and part of the associated car park, and Bridge Houses. Part of the Kingsway car park is leased to the Sowerby family.
Other major landowners are believed to be the Sowerby family, who own a large part of the southern end of the site including the garage and the Farm Food retail store, and Sunlight Service Group, which own the Laundry. There are also various small ownerships at the corner of Bulk Road and Parliament Street.
(See Diagram 3)
A number of different potential uses may be acceptable on the site, providing they comply with the relevant Local Plan policies and are part of an appropriate mix of uses. Proposals should aim to bring about a comprehensive redevelopment of the site. Alternatively, the City Council may consider proposals for partial redevelopment provided these could be satisfactorily integrated into an overall scheme. Proposals for partial redevelopment that would prejudice the comprehensive development of the site will not be permitted.
In appropriate quantities as part of a mixed-use scheme, the following uses are likely to be acceptable to the City Council:
- Leisure uses such as health and fitness centres
- Food and Drink, (A3) especially in association with other uses
- Retail (A1) subject to its impact on existing centres
The Council’s requirements for each particular use are set out below.
Business/Office Use
The Kingsway site with its proximity to the Riverside Park, excellent public transport links and ease of access to the city centre and the M6 Motorway, offers a potentially high standard of environment and is ideally placed to meet any demand for office space. Business space could be provided as a street frontage to Parliament Street, as a perimeter architectural feature at the northern end of the site, and/or as a means of restoring Bridge End House.
Housing
In the last few years a large number of new residential properties have been completed in or adjacent to Lancaster City centre, and have proved extremely popular. The Council wishes to take every opportunity to promote the inclusion of houses within mixed-use developments in or around the city centre, particularly on brownfield sites. Part of the site of the former shoe factory on Bulk Road already has planning permission for residential development and the adjoining former scrap yard and garage sites are also suitable for residential purposes. A mixture of terraced and flatted development would be appropriate and could deliver a fairly high residential density in line with current Government guidance.
In addition, with careful layout and design, other parts of the main Kingsway site offer the potential to introduce high density, quality residential development. The site’s frontage to Parliament Street, where southbound traffic is at present restricted to buses, is particularly suitable for housing. In addition, within the main body the site, new houses and flats could be introduced set around a central courtyard. Whilst it is accepted that the surrounding road network will inevitably affect living conditions, the Council considers that these impacts could be overcome with careful attention to boundary treatment, landscaping and the location and orientation of living accommodation.
In view of the site’s proximity to the city centre and to public transport, the Council is willing to consider proposals on this site which increase residential densities by reducing the on site provision made for car parking.
Hotel/Youth Hostel
The site’s location also means it would be a suitable location for a hotel. The Council is also aware that the Youth Hostel Association has expressed an interest in locating in Lancaster. Again, such a use would be an appropriate element in a mixed-use scheme. As with residential development, care will be needed to minimise the impact of traffic on any proposed use.
Leisure Uses
Leisure uses, such as health and fitness centres are amongst the fastest growing development sectors in the country. The Kingsway site could provide a suitable location for such uses. In dealing with such proposals, the authority will consider whether the proposal could be located in Lancaster centre by applying a sequential approach in a similar way to its treatment of major retail proposals. It will also take into account the potential impact of proposed development upon existing town centres and its accessibility to modes of travel other than the private car.
Given the recent construction of multi-screen cinemas in both Lancaster and Morecambe, the Council does not consider that the Kingsway site is an appropriate location for such a use.
Food and Drink
Bars and restaurants would be appropriate uses on the Kingsway site as part of a wider, comprehensive proposal. However, the Council is concerned over the concentration of late night activities at the northern end of Lancaster city centre and will adopt a cautious approach to any proposal containing a significant element of such uses.
Retail
The Lancaster District Local Plan directs new retail development to existing retail centres, at a scale appropriate to the function of those centres. It also sets out the criteria against which the Council will determine retail proposals outside these centres. In particular, it sets out a “sequential approach” (in line with the provisions of PPG6) for the location of new retail schemes. Proposals that could result in an adverse impact on the overall viability and vitality of existing centres will be resisted.
A study of retail capacity conducted for the Council as part of the local plan process concluded that, during the period to 2006, there would be capacity within the local economy to justify some additional non-food retail floor space in Lancaster. An element in this capacity was the scope for further growth in demand for shops selling “bulky goods”. Subject to the tests set out in the Local Plan, such shops could form part of a new development at Kingsway.
Listed Buildings
The Kingsway site contains a number of listed buildings and potential developers must consider the future of these buildings carefully in any redevelopment proposals.
Bridge Houses (38-42 Parliament Street)
Restoration and reuse of the derelict Bridge Houses is a main objective of the Kingsway redevelopment. Bridge Houses are former inns and tollhouse built in 1787 in classical style to collect tolls for the contemporary Skerton Bridge. They are aligned with the centre axis of the bridge and are an important part of Lancaster’s Georgian heritage.
The properties are listed Grade 2* and, though they are in a poor condition and further damaged by previous extensions, it is important that the treatment proposed for the exterior faithfully restores the original exterior and fenestration details. Any extensions must be of an appropriate standard of design and must not overwhelm or otherwise spoil the appearance of the exterior of the original building.
The following uses for the restored Bridge Houses may be acceptable:
- Restaurant/Bar, operating in association with or independently of any leisure development
- Business/office use, possibly as an entrance and phase one of a potentially larger development
- Youth Hostel: the Youth Hostel Association is known to be interested in opening a hostel in Lancaster
- Housing: its conversion and restoration as part of a residential development would be acceptable, though this could be prejudiced by traffic volumes close to its north west wall
- Student Housing: similarly, its restoration as part of a larger development as student housing would be acceptable, and well located in relation to local transport, shopping and student facilities.
Transportation
Car Parking
As previously indicated, the Council wishes to encourage the provision of around 300 car spaces on the Kingsway site. This is seen as an important opportunity to provide for essential access to the city centre by car users, while reducing the need for drivers to use the city centre one-way system. The Council intends to encourage the use of the car park by differential charging, and wishes to promote a weekend park and ride service for shoppers.
It is important to the Council’s emerging transport strategy that the new Kingsway car park is available to the general public for both long-stay and short-stay use. It will not, therefore, be possible for all new parking facilities on the site to be restricted to users of new on site facilities such as leisure and/or retail uses. The Council will be happy to discuss a scheme of management for the car park aimed at achieving sufficient general public access for city centre users, without compromising the legitimate needs of new development on the site.
Access and Circulation
The Kingsway site lies between some of Lancaster’s busiest roads. The County Council, as Highways Authority and the City Council are working together on proposals to improve the transport system in this area. Developers must therefore work closely with both authorities and ensure that their proposals take account of possible changes to the highway network between Back Caton Road and St. Leonardgate, proposed in the Local Plan. A Transport Impact Assessment (TIA) must accompany any proposals for major development on the site.
Public Transport
The creation of a bus priority route linking Heysham and Lancaster University is a central part of the Council’s transport strategy for the next 10 years (as set out in the Local Plan). It is proposed that the Parliament Street bus lane, which adjoins the site’s southwest boundary, will be extended along North Road to the new bus station. This is an important element of the bus priority system. Kingsway is well placed to take advantage of the increased emphasis proposed for public transport. Development proposals should be designed to ensure that public transport users have direct and convenient access to the new facilities to be provided at the site.
Access for Vehicles
The roads round the site are currently heavily congested for much of the day, and vehicular access will require careful consideration. While the present circulation arrangements remain, it is likely that access and egress for vehicles will have to be taken from Back Caton Road.
Developers proposing modifications to the traffic circulation should indicate how access to the various parts of the site would be taken from the new system. Such arrangements will have to be discussed with officers of the County and City Councils, and developers may find it helpful to brief traffic consultants on this issue.
Pedestrians and Cyclists
It is of great importance that access arrangements to any new development makes proper, safe provision for cyclists and pedestrians both to and through the site. Both should be afforded priority over vehicles wherever potential conflicts over access issues arise, and essential facilities such as cycle storage for staff and customers, and adequate signing for walkers and Cyclists, should be provided.
Landscaping
Open space and car parking will need to be treated with great care and the Council will look for a thoughtful approach to the design and maintenance of open landscaped areas. Within the site, the subdivision of car parking into visually contained areas by the use of tree and shrub planting and the creation of attractively landscaped settings for the new buildings will be important. Pedestrian routes through the site linking the new buildings to bus stops, car and cycle parking, nearby housing areas and the city centre, should be suitably landscaped.
On the east side of Back Caton Road, the steep largely overgrown embankment has long been a negative feature in the area. At present, it contributes to the poor visual quality of this northern entrance to the city centre. Developers should consider how best to improve its appearance, to the benefit of site users and drivers on Back Caton Road.
Implementation
The Council attaches great importance to securing the early, successful redevelopment of the Kingsway site. It will, therefore, assist this process wherever possible. It will work with potential developers to facilitate discussions with key agencies such as English Heritage and Lancashire County Council. It is also prepared, if appropriate, to consider whether grant aid could be available from economic development funds.
