Kelham Neepsend AAccttiioonn PPllaann2008-2018

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FOREWORD

Kelham Neepsend is a place unmistakably of Sheffield, a place thatbrings together both its proud history and forward looking business,living and leisure. This document sets out clear guidance for theprotection of the area’s rich heritage, for the growth and developmentof its residential and business communities, and for improvements topublic spaces and the river. All of this will help build and sustainKelham Neepsend and its emerging community.

Councillor Tim Rippon

Cabinet Member (Economic Regeneration, Culture & Planning)

The production of this action plan was partly financed by the European Union through the South Yorkshire Objective 1 Programme

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� An attractive place to live, with a rich diversity of residents andhousing types including affordable flats, executive apartments andstudent/key worker accommodation.

� A new inner city village formed around Kelham Square and thegoyt where convenience shops, cafes, bars and public eventspaces are located.

� A thriving and accessible business location north of the riverhousing small manufacturing, service industries, craft and artistworkshops, studios, small professional offices and a mix ofrefurbished and new premises.

� An area that enjoys good pedestrian and cycle access into the citycentre and to well maintained green spaces along the river or inadjacent neighbourhoods.

� A good place to start and grow businesses.

� The home of a successful and popular micro-hydro powergeneration scheme at Kelham Wheel.

� A well-managed and ecologically-rich River Don, used for a rangeof leisure pursuits including canoeing, angling, walking andjogging.

� Kelham Industrial Museum enjoys greatly increased visitornumbers as it is now located in a lively, safe and accessible placeon a popular leisure walking route along the river.

� Kelham Neepsend is nationally well known for its real ale pubsand breweries, gastro-pubs, its open air events focused aroundKelham Square and Museum Yard ranging from Victorian marketsthrough to food fairs and music festivals.

� The streets are well lit, attractively paved and well managed byCity Centre Management and Ambassadors.

� Residents and businesses are confident in the local floodprotection measures which have prevented any repeat of the 2007flood.

� All Kelham Neepsend’s historic building stock has been restoredand found new uses.

KELHAM NEEPSEND – A VISION FOR 2018

Images courtesy of Axis Architecture / Raven Group.

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1 INTRODUCTION

1.1 THE ACTION PLAN AREA

1.2 WHY AN ACTION PLAN IS NEEDED

1.3 WHO THE ACTION PLAN IS FOR

1.4 CONSULTATION

1.5 STATUS OF THIS DOCUMENT

2 POLICY CONTEXT

3 URBAN DESIGN ANALYSIS

3.1 URBAN CHARACTER

3.2 KEY ROUTES AND LINKAGES

3.3 KEY VIEWS

4 AIM AND OBJECTIVES OF THE ACTION PLAN

KELHAM NEEPSEND ACTION PLAN 2008 - 2018

5 DELIVERY OF ACTION PLAN OBJECTIVES

5.1 LAND USE

5.2 BUILDING DESIGN PRINCIPLES

5.3 PUBLIC REALM AND OPEN SPACE

5.4 PUBLIC SAFETY

5.5 THE RIVER

5.6 TRANSPORTATION AND ACCESS

5.7 DELIVERY MATRIX

6 TOURISM AND VISITOR ATTRACTIONS

7 COMMUNITY INVOLVEMENT

LIST OF CONTACTS

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1. INTRODUCTION

11..11 TTHHEE AACCTTIIOONN PPLLAANN AARREEAAThe areas of Kelham and Neepsend to whichthis document relates are important to the cityof Sheffield for a number of reasons. Theindustrial history of Kelham and Sheffield canbe traced back to the 12th Century, withKelham Island’s contribution to thedevelopment of Sheffield’s commercial andarchitectural character directly influenced byits association with the prosperous steel,cutlery and silverware industries. KelhamIsland was designated a Conservation Area in1985 to preserve some of Sheffield’s finesthistoric industrial buildings and since that timea number of listed buildings have beenredeveloped as residential units. The area ofNeepsend covered by the action plan ispredominantly industrial, although it doescontain a diverse mix of businesses, includingscrap-yards, recording studios, cutting-edgesoftware developers and the FoundryClimbing Centre.

11..22 WWHHYY AANN AACCTTIIOONN PPLLAANN IISSNNEEEEDDEEDDAction plans have been prepared for virtuallythe whole of the city centre and whilst theCity Centre Masterplan and Sheffield

Development Framework provide the overallstrategy, the action plans provide a finer-grainof planning policy responding to localconsultation and development pressures andembracing issues such as area management,local economy and housing tenure as well asland use. After many years of little changeKelham Neepsend is now experiencing rapidredevelopment and pressure for much more.

11..33 WWHHOO TTHHEE AACCTTIIOONN PPLLAANN IISS FFOORRThis action plan is for all stakeholders whohave a personal, business or professionalinterest in this unique area.

11..44 CCOONNSSUULLTTAATTIIOONNA critical part of the action plan process isconsultation. In October 2006, all residentsand businesses in the area were invited togive their views on issues of concern to themand to Kelham Neepsend. This was followedby a wider public consultation. The mainfindings from the consultation were:

� Although Kelham’s residential community isrelatively small, it is now a popular place tolive. There is some concern however overthe general lack of local facilities.

� There is a well-established business

community in Neepsend, and somebusinesses have concerns over pressurefrom residential developers and the impacton land values/rents and potential conflictwith traditional industry.

� Concerns exist over the style anddimension of a number of recent modernresidential developments in Kelham.

� Kelham residents have a desire to see theretention and re-use of architecturally andhistorically important buildings.

� Problems exist in terms of anti-socialbehaviour, crime, litter, traffic and parking,and a lack of open space.

11..55 SSTTAATTUUSS OOFF TTHHIISS DDOOCCUUMMEENNTTThis action plan is a delivery vehicle for a 10-year vision for the area, and as such will bereferred to when determining planningapplications and allocating public investment.The action plan also works within existinglocal, regional and national policies (seeSection 2) and will inform the emergingSheffield Development Framework and CityCentre Masterplan review.

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2. POLICY CONTEXT

Other policy documents and studies haveinfluenced the contents of this document andshould be consulted in conjunction with it.

UUNNIITTAARRYY DDEEVVEELLOOPPMMEENNTT PPLLAANN ((UUDDPP))((11999988))The UDP designates this area as acombination of General Industry, FringeBusiness and Industry, and Mixed Use. Italso designates part of Kelham Neepsend asan Area of Special Character. It should benoted that the industrial character of part ofthe Kelham Neepsend area has beensignificantly diluted by non-industrialdevelopment.

SSHHEEFFFFIIEELLDD DDEEVVEELLOOPPMMEENNTTFFRRAAMMEEWWOORRKK Once adopted, expected by 2010, thisportfolio of documents will provide the spatialplanning policy for Sheffield and will replacethe Unitary Development Plan.

Information relating to the current status ofthe SDF, and details of the UDP policy for thearea, can be found at sheffield.gov.uk. Asummary is provided in Section 5.1.

CCIITTYY CCEENNTTRREE MMAASSTTEERRPPLLAANN ((22000000 && 22000077))The City Centre Masterplan wascommissioned in 2000 by the City Counciland Sheffield 1 and has provided strategicguidance for the successful regeneration ofthe city centre. It was strongly focused on thecore of the city centre and had little to sayabout more peripheral areas such as KelhamNeepsend. A review of the Masterplan, to becompleted in 2007, includes these areas andprovides a new strategic context, andexpands the city centre to include KelhamNeepsend. This in effect reclaims the RiverDon for the city centre, stimulating major jobincreases in office based employment,research and development activity and digitalindustries.

SSHHEEFFFFIIEELLDD CCIITTYY CCEENNTTRREE UURRBBAANNDDEESSIIGGNN CCOOMMPPEENNDDIIUUMM ((UUDDCC)) ((22000044))This document includes a Character Study ofpart of the action plan area and providesguidance for general scale, material andmassing for new buildings. The UDC alsoacknowledges the important role the Kelhamarea plays in Sheffield’s industrial heritageand also recognises the need for greaterinteraction between the built form and theriver.

CCIITTYY CCEENNTTRREE LLIIVVIINNGG SSTTRRAATTEEGGYY ((22000044))Identifies the advantages of the riversidesetting of Kelham and its potential to growinto an established city centre residentialcommunity.

AAFFFFOORRDDAABBLLEE HHOOUUSSIINNGG IINNTTEERRIIMMPPLLAANNNNIINNGG GGUUIIDDAANNCCEE ((22000066))Sets out the City Council’s requirements forthe provision of affordable housing across thecity, which in brief is that affordable housingwill be negotiated for developments whichdeliver more than 25 residential units or for adevelopment on a site in excess of 1 Ha. Thefull policy can be found at sheffield.gov.uk.

UUPPPPEERR DDOONN RRIIVVEERRSSIIDDEE AACCCCEESSSSSSTTUUDDYY ((22000077))Emphasises the importance of the River Donas an asset to Sheffield and proposes a newriver crossing and riverside walk fromMiddlewood Park to Lady’s Bridge throughKelham Neepsend, linking with the Five WeirsWalk.

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AADDJJAACCEENNTT AARREEAASS -- PPOOLLIICCYYIINNIITTIIAATTIIVVEESSIn addition to the policy initiatives listed above,a number of action plans and studies havebeen, or are being, undertaken in thefollowing adjacent areas and have alsoinfluenced the contents of this action plan:

� St Vincents (Approved)

�Wicker Riverside (Approved)

� Cathedral Quarter (Approved)

�West Bar (Approved)

� Burngreave Housing Market Renewal (Approved)

� Upper Don Valley Regeneration Strategy (Approved)

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33..11 UURRBBAANN CCHHAARRAACCTTEERRThe action plan area is a rich mix ofindustrial, commercial and leisure activitiestogether with a small residential community.Historically, the requirement of the proximityof a water supply for the metal trades in thearea resulted in early riverside development,some of which still remains. In recognition ofthe industrial and architectural importance ofthe area, the Kelham Island IndustrialConservation Area (one of the first in the UK)was created in 1985, and extended in 1986,to preserve some of Sheffield’s finest historicindustrial buildings. Whilst the collection ofdistinctive and attractive works along GreenLane and Alma Street is well known, thefrontage of smaller Victorian steelworks alongMowbray Street and Neepsend Lane is lessrecognised but equally valuable.

There are three distinct character areas withinthe action plan boundary each with their ownlocal dynamic and identity, which, for thepurpose of this action plan are labelled asWoodside, Core Neepsend and KelhamRiverside. These character areas areidentified in Fig 1.

3 URBAN DESIGN ANALYSIS

FIG 1. KELHAM NEEPSEND CHARACTER AREAS

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The Woodside area is predominantlyindustrial in nature and is located on a keyroute to the Burngreave Housing MarketRenewal Area. The railway line to the southeffectively severs Woodside from theremainder of the action plan area, althoughthere is some potential in improving access tothe adjacent Stanley Fields.

Key characteristics and issues:� Predominately industrial in character.

� Rutland Road provides a key connection tothe Burngreave Housing Market Renewalarea.

� Severed from the rest of KelhamNeepsend by the railway line.

� Benefits from high visibility due to itstopography and has potential to accesslarge areas of underused open space atStanley Fields.

� The two tunnels, under the railway viaductat Rutland Road and Harvest Lane, are theonly access routes for vehicles andpedestrians.

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33..11..22 CCOORREE NNEEEEPPSSEENNDD

Core Neepsend is predominantly industrial,although it does contain a diverse mix ofbusinesses, including scrap-yards, recordingstudios, cutting-edge software developers andthe Foundry Climbing Centre. However, otherthan a ribbon of riverside development, it hasseen little activity of any real quality in recentyears.

Key characteristics:� Industrial activity and diversity of other

uses provides Core Neepsend with itsdistinctive character.

� The area has valuable river frontage,although there is limited interactionbetween existing riverside buildings and theriver itself.

� Historically significant streetscapes, suchas Mowbray Street, remain largely intactconstituting one of the city’s most complete19th Century industrial areas still in activeuse.

� The area contains an established anddiverse business community withsignificant interconnections and a strongdesire to remain.

� There are a number buildings of characterthat are important to Sheffield’s heritage.These are identified in Figure 2 on page12.

� North of Neepsend Lane there are areasof open storage and poorer quality 20thCentury warehousing that, whilst lackingcoherence, do house some productivebusinesses.

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33..11..33 KKEELLHHAAMMRRIIVVEERRSSIIDDEE

The conversion of thehistoric Cornish Placeand Brooklyn Works inKelham Riverside areamongst the earliestsuccessful examples ofcity centre living inSheffield. This wellestablished residentialcommunity is expandingthrough the significantdevelopments alongAlma Street and GreenLane. With the closureof several engineeringplants in 2006/07residential is rapidlybecoming the dominant

use in Kelham Riverside, although otheractivity in the area which help preserve itsdistinct character include the Kelham IslandIndustrial Museum and a number of real alepubs, together with the award winning KelhamIsland Brewery.

Key characteristics: � Kelham Riverside is a mixed-use area,

dominated by an established and growingresidential community with some limitedcommercial activity and leisure uses.

� The area has seen a significant amount ofdevelopment activity in recent yearsbuilding on its riverside location whilstretaining a significant proportion of its’urban form and distinctive buildings.

� The area contains a number of listedstructures, including three bridges and a12th century weir, and features that are animportant link to Sheffield’s industrial past,such as the Kelham goyt and its intactwheel-pit, both of which are in need ofsubstantial restoration.

� The area enjoys a prominent riversidelocation, although a number of thebuildings on the river have little or nointeraction with it.

� The environmental quality of the Don hasimproved substantially but suffers fromlitter, invasive plant species and lack ofmanagement.

� The new sections of riverside walk plannedand under construction will create a safepedestrian route along the river or goytlinking to the Upper Don Walk.

Common Issues: There are a number of issues that arecommon to all three character areas, inparticular Kelham Riverside and CoreNeepsend:

�Whilst riverside frontage is seen as anasset, there is some concern over themaintenance of the river environment,which does not legally fall under the remitof one agency.

� Perceived and real problems exist in termsof safety, anti-social behaviour and criminalactivity often associated with prostitutionand drug abuse.

� Traffic and parking problems, includingconcerns over accessibility and on-streetcommuter parking.

� Lack of open space for residents.

� Poor pedestrian and vehicle connection tothe city centre.

� A perceived neglect of the public realm.

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33..22 KKEEYY RROOUUTTEESS AANNDD LLIINNKKAAGGEESSThere are a number of key routes through thearea that help define the character of KelhamNeepsend. These key routes also linkKelham Neepsend with neighbouring areasand the city centre:

VIEW OF KELHAM NEEPSEND FROM PYE BANK

� Rutland Road

�Mowbray Street

� Burton Road

� Ball Street

� Alma Street/Green Lane

� The emerging Upper Don Walk

� Kelham to Victoria Quays

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FIG 2. URBAN DESIGN STRATEGY

33..33 KKEEYY VVIIEEWWSSThere are several importantviews into, and within, KelhamNeepsend that characterise theuniqueness of the area:

�Woodside

� Pye Bank

� Rutland Road

� Penistone Road

� Ball Street Bridge

�Mowbray Street

� Ring Road

These key routes and views areidentified in Fig 2.

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4. AIM AND OBJECTIVES OF THE ACTION PLAN

As outlined in Section 1, the action plan playsan important strategic role in the delivery ofthe vision for Sheffield city centre and CentralRiverside. In a more local setting, the actionplan’s main roles are to provide a fine grainplanning policy framework and to identify keyinterventions as part of an implementationstrategy.

In the context of current and emergingplanning policy and development pressure,and by drawing on the conclusions of thecomprehensive consultation exercise, there isa need to produce a clear and robust areapolicy to support the established and growingresidential and business communities inKelham Neepsend. It is proposed thereforethat the key aim of this action plan is:

‘To build on the area’s assets: its specialarchitectural identity; its strong links withSheffield’s industrial heritage; the river; itswell established and diverse businesscommunity; its growing residentialcommunity; to create a distinctive andsustainable mixed use area, and thuscontribute to the regeneration of the citycentre and adjoining neighbourhoods’

This aim will be met by achieving thefollowing core objectives:

Objective 1To retain, re-use, and restore buildingsand townscape of architecturalimportance

Objective 2To encourage sustainable and fullyinclusive development that is sympatheticto its surroundings and that delivers highquality commercial accommodation tosupport business development in the area

Objective 3To provide guidance on the volume, mix,style and location of future residentialdevelopment

Objective 4To address the increasing need for localshopping, health and community facilities,to improve access to open space and toaddress anti-social behaviour, crime andtransportation issues and to increase theopportunity for recycling of waste

Objective 5To heighten awareness of the River Don,its three listed bridges and listed weir andmill goyts in the area, to explore thepotential for new river crossings, toimprove flood protection and access to theriver and to roll out an environmentalmanagement scheme

Objective 6To improve the quality and connectivity ofthe public realm to accommodatemovement and special events

Section 5 below sets out key principles andidentifies a number of practical interventionswhich, if implemented, will contribute to thedelivery of the objectives of this action plan.

5.1.3 Action Plan - Land UseProposalsThis action plan presents an opportunity tomanage, at a finer grain level, the transitionfrom the current development plan for the city

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5. DELIVERY OF ACTION PLAN OBJECTIVES

The principles and interventions referred toabove have been grouped together under thefollowing headings:

� Land Use

� Building Design Principles

� Public Realm & Open Space

� Public Safety

� The River

� Transportation

55..11 LLAANNDD UUSSEE

5.1.1 Current Land Use AllocationThe Unitary Development Plan (UDP)predominantly designated Kelham Riversideas a Mixed-Use Area with small pockets ofGeneral Industry. This is reflected in thevolume of residential development activity inrecent years. The Core Neepsend andWoodside areas are on the whole designatedfor industrial use.

5.1.2 Sheffield DevelopmentFramework (SDF)Currently the subject of a lengthy andcomprehensive consultation exercise, theSDF will fully replace the UDP in 2010. TheSDF City Policies and Proposals Map havereached the Preferred Options stage, and inmost parts of the action plan area areproposing significant changes to the UDP.Kelham Riverside is proposed as a Businessand Housing Area, where offices and housingare preferred uses. Core Neepsend is mainlyproposed as a Business Area, where officedevelopment is preferred, although theriverside is proposed as a Business andHousing Area. Woodside is proposed as aBusiness and Industrial Area wheremanufacturing and distribution/warehousinguses are preferred.

These proposed changes are in recognition ofthe extension of the city centre to includeKelham Neepsend and the need to introduceuses which are more appropriate to a citycentre environment.

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(the UDP) to its forthcoming replacement, theSDF. As such, it is proposed that the landuse allocations, for the purpose of thedelivery of this action plan’s objectives, followthe land use principles currently beingestablished by the SDF. Taking eachcharacter area in turn:

5.1.3.1 WoodsideIn land use terms, Woodside will continue tobe commercial in nature and residential is notconsidered to be an acceptable use. Theprovision of higher quality commercialpremises to encourage the retention ofexisting businesses, and to attract businessesinto the area, will be particularly encouraged.

5.1.3.2 Core NeepsendOther than a growing ribbon of riversidedevelopment, Core Neepsend has seen littledevelopment of any real quality in recentyears. The land use principles contained inthe draft SDF present an opportunity tointroduce further, but limited, residentialdevelopment into Core Neepsend.

However, any residential proposals will beconsidered in the context of Objectives 2 and3 in this action plan. These objectives seek tosupport business development in the areaand to control the location of future residentialaccommodation. Core Neepsend has a wellestablished and diverse business community,some in expanding sectors, and is animportant economic asset and employmentprovider for the area. Consultation hasrevealed however that many commercialtenants in the area occupy their premises onvery short leases or simply by verbal

agreement, which leads to uncertainty oftenure and a fragile business plan. Tocompound this problem, Core Neepsend hasseen little in terms of quality commercialdevelopment in recent years, and a number ofcleared sites have been used for openstorage or parking. It is proposed thereforethat the dominant use in the area will continueto be commercial, and that the provision ofhigher quality business premises in CoreNeepsend will be supported. Whilst all B1type uses are appropriate, it is consideredthat B1b and B1c uses (non-office businessdevelopment, for example light industrial)could be particularly important and relevant toCore Neepsend. In mixed-use schemes, theB1 element (B1a, B1b, B1c) will form themajority of the development. Newdevelopments for B2 use (General Industry)are unacceptable; over time some of thelarger metalworking firms may choose torelocate to modern and more appropriatepremises elsewhere in the city and the area isexpected to move naturally towards lighterindustry, services, studios and small hybridoffice/workspace.

Whilst recognising the value of activity suchas scrap and breakers yards in the area, asthe area develops there will be a requirementfor more environmental responsibility fromthose activities which seriously impact on the

Where residential development is consideredacceptable as part of a mixed development,the configuration of the development shouldbe given careful consideration to ensure thatthe objective of maintaining the commercialcharacter of Core Neepsend is preserved.Proposals with residential units on upperfloors above commercial premises, or to therear of a mixed-use development, will beencouraged.

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amenity of other users of the area.

Although it is proposed that the principal land-use will continue to be commercial, to ensurecontinued vibrancy and vitality of key routesin Core Neepsend (as identified in Fig. 2 onpage 12) active frontages will be encouragedin the form of small scale A1/A3 units,particularly at corner locations and junctions.Primary pedestrian entrances to newdevelopments on these routes should be fromthe main street as opposed to a rear car-parkor internal courtyard.

Residential development will only beconsidered as part of mixed-use schemes. Itis also recognised that the river provides animportant visual and leisure amenity for localresidents in an otherwise harsh and industrialenvironment, and as such the case forresidential development weakens the furtheraway from the river a development site sits,particularly in Core Neepsend. The case forresidential is weakened further in the areatowards the railway line which currentlypresents a poor environment, particularly inthe evening. For the above reasons,residential development is not consideredacceptable in the area bounded by the railwayline, Hicks Street, Burton Road and Rowland

Street, whilst the residentialamenity in this area remainspoor.

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RIVERSIDE DEVELOPMENT OPPORTUNITY

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street pattern in the area.

Articulation of building facades withprojections or recessions in the elevations, orthrough the use of fenestration, balconies etc.will soften the facades, breaking down theappearance of building mass and providingvisual interest.

Pitched, rather than flat roofs, are contextuallyappropriate, will provide architectural interestand therefore are preferred and will besupported.

5.1.3.3 Kelham RiversideIn recent years there have been a number oflarge and predominantly residentialdevelopments approved in Kelham Neepsend.As such, the majority of available sites in thearea have been developed for residential, orhave approval for residential development.However, to maintain a commercial presencein the area, and to ensure consistency withthe emerging SDF, proposals for further largescale and single-use residential developmentwill generally be resisted. However, single-useresidential development may be consideredacceptable if there are demonstrable heritagebenefits, for example to secure the retentionand re-use of a listed or character building.There remains some potential for riversideresidential development in the vicinity ofWaterloo Walk and Dixon Street, however anydevelopment would be required to include anelement of at least 50% B1 (commercial).For reasons of residential amenity, thecommercial element of larger mixed-useschemes in the location of WaterlooWalk/Dixon Street would be aligned along thebusy Rutland Road and Penistone Road.

5.1.4 Community FacilitiesA relatively small and permanent residentialcommunity now exists in Kelham Neepsendbut has yet to attract a significant level of

local facilities in terms of shops, healthcareservices, and places to eat and drink. Inacknowledgement of this, and in anticipationof a growth in the number of residents inKelham Neepsend and adjacent areas, theprovision of accommodation for the deliveryof local services (food & drink, small shops,health care facilities, nurseries and so on) issupported, particularly as part of a mixed-usedevelopment. It is proposed that a focus forsuch services will be a new public spaceadjacent to the Fat Cat pub, to be known asKelham Square.

55..22 BBUUIILLDDIINNGG DDEESSIIGGNN PPRRIINNCCIIPPLLEESS

5.2.1 Architectural Style andMaterialsThe retention and re-use of the existinghistoric built form will be encouraged toenhance and strengthen the character andquality of Kelham Neepsend. Contemporarybuildings in an historic setting, whereappropriate, can provide a striking contrast tothe existing built form. In all instances,architectural fashion and pastichedevelopment is to be avoided to ensure atimeless and lasting urban form.

New development should provide robuststreet frontages to reinforce the historical

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Materials used for developments within, andimmediately adjacent to, the Kelham IslandConservation Area will be of a high quality tocomplement the prevailing palette ofmaterials in the area, such as brick, stoneand slate. Some high quality modernmaterials, such as steel and glass and timbercladding, may be appropriate, provided theyare used sensitively.

Other vernacular features such as roundedcorners, arched accesses, saw-tooth andclerestory rooflines, brick chimneys and so onwill reinforce the area’s heritage and will besupported in new developments.

5.2.3 Layout and ArrangementNew buildings should generally adhere to thecourtyard form of arrangement. Deep planforms, which are non-contextual andunsustainable, will be resisted. The buildinglayout should ensure good quality lighting andnatural ventilation is available to itsoccupants.

Any development proposals that significantlycompromise the key views and routesidentified in Sections 3.2 and 3.3 will bestrongly resisted.

Development away from the ConservationArea, in Core Neepsend and Woodside,should be contextual in terms of layout,massing, architectural treatment and use ofmaterials.

5.2.2 Building HeightNew developments must respect the scale,height, proportion and materials of theexisting historic built form to ensure theretention of the area’s distinctive character, inaccordance with Sheffield City Council’sUrban Design Compendium. Generally,building heights will not exceed the existingmaximum of 5 storeys.

that the fabric of redundant listedbuildings that are awaiting new uses willbe maintained in at least a wind andweathertight condition and are securedfrom vandalism. There are a number ofvaluable buildings that have beenidentified as being at risk:

�Wharncliffe Works

� Cornish Works

� Back-to-back housing on MowbrayStreet

� Globe Works (rear)

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5.2.4 ConservationPart of the action plan area falls within theKelham Island Conservation Area and, aspart of the action plan process, a CharacterArea Study appraisal has been carried out.This has resulted in the identification of allbuildings and features that contribute to thecharacter of the area (Fig. 2, page 12). It hasalso resulted in the spot-listing of back-to-back housing on Mowbray Street which is ofsignificant importance not only to the area,but also to the city’s architectural andindustrial heritage, and it is this richarchitectural heritage which gives the area itsuniqueness. Therefore, future development inthe area will be expected to observe thefollowing principles:

� Buildings that are listed or add character tothe area will be retained and reusedwherever practical.

� New buildings that sit alongside listedbuildings or buildings of character will berequired to be sensitive to their location,particularly in terms of height andmaterials, and will be of an exemplary andinnovative design.

The City Council will also use listed buildinglegislation, such as repair notices, to ensure

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The City Council will continue to work with theowners of these properties to bring forwardtheir early redevelopment and supports theirretention and re-use, and if necessary willconsider the use of a wide range of legislativeand planning powers at its disposal to ensurethat these important buildings are not lost tothe city.

5.2.5 SustainabilitySheffield’s Environmental Excellence strategyproduced by the Sheffield First partnership(sheffieldfirst.org.uk), and the City Council’senvironmental policies, make carbonreduction and adaptation to climate changekey priorities. The action plan supports thisstrategic approach, and will encourage theimplementation of these relevant policies andprinciples. By their practical application inKelham Neepsend, progress will be madetowards a low carbon community that isadapting to climate change.

It is anticipated that new development withinthe action plan area will meet the BREEAMcriteria for residential and commercialbuildings, and will follow the City Council’ssustainability guidelines, and those containedin the emerging Sheffield DevelopmentFramework (SDF). Both can be found on theCity Council’s website at sheffield.gov.uk.

5.2.6 Flood RiskThe majority of the action plan area fallswithin an Environment Agency defined ‘FloodZone’. As such, it is a requirement ofnational planning policy (Planning PolicyStatement 25) that ‘vulnerable uses’, forexample residential development, will only bepermitted in a flood zone if it addresses andsatisfies the Sequential and ExceptionTests. The Sequential Test mustdemonstrate that there are no reasonablyavailable sites with a lower risk of floodingthat would be appropriate to the type ofdevelopment or land use proposed. TheExceptions Test then provides a methodfor managing flood risk whilst still allowingnecessary development to occur.

In addition to national planning policy, thecurrent advice from the EnvironmentAgency is that any planning applicationfor a site flooded in June 2007 will requirethe following supporting information:

� A full-scale investigation as to why thesite flooded.

� To what depth and extent it flooded

� Details of proposed mitigationmeasures to ensure any proposed newdevelopment doesn’t flood, andassurances that these measures willnot adversely affect other properties.

It is anticipated that the EnvironmentAgency’s investigations into the June floodswill be concluded by mid 2008 when theabove advice will be reviewed.

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55..33 PPUUBBLLIICC RREEAALLMM AANNDD OOPPEENN SSPPAACCEE

5.3.1 Public RealmThe quality of public realm improvements iskey in repairing the historic streetscape and inraising expectations of the quality and type ofactivity in the area, particularly in relation toresidential developments. In addition toraising expectations for the area, high qualitypublic realm will improve and encouragepedestrian movement, further contributing topublic safety objectives and in some instancesattract visitors and special events.

In terms of the material palette for newdevelopments, the Kelham Neepsend areawill generally adhere to the palette and streetfurniture suite for Secondary Zones as set outwithin the Sheffield Urban DesignCompendium. (sheffield.gov.uk)

However, in the Conservation Area, the use ofcontextually appropriate materials (such asnatural stone paving) will be used wherepossible to improve the streetscape on keyroutes, for example Green Lane/Alma Street,the proposed Kelham Square and MowbrayStreet. FIGURE 3. PUBLIC REALM AND OPEN SPACE STRATEGY

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space is just one element. The river and theKelham goyt do provide a unique ‘greencorridor’ in the area, and the potential tocapitalise on this asset is acknowledged byObjective 5 above. It is not appropriate orviable to introduce new large areas of openspace into the area, although a number ofopportunities are emerging to provide small,well designed areas of public open space.

5.3.2 Open SpaceIt is acknowledged that there is a limitedsupply of open or green space within theaction plan area, which is a reflection of itshistoric and recent role as a densely builtindustrial location. The ongoingtransformation of the area to a mixed-usecommunity, will increase the demand forimproved amenity for residents, of which open

As part of its ongoing operationaldevelopment, it remains the desire of theKelham Island Museum to improve the smallarea of open space at the Western end ofKelham Island. Plans have been prepared fora small park at the end of the proposedBrooklyn Bridge, a green space that would beavailable to residents, workers and visitors tothe area. Completion of the Brooklyn Bridge,and the proposed connection across the goytfrom the residential development in GreenLane Works, would make this space available24 hours a day.

TIMESCALE: 2009/2010 FUNDING OPPORTUNITIES:

PRIVATE DEVELOPMENTS, SCC (SECTION 106)

Kelham Square & the GoytThe completion of major residential schemeson Alma Street and Green Lane will result inthe creation of a new public space in thearea, Kelham Square. This new square willbe predominantly hard-paved and will be aplace for people to sit and relax. Tocomplement this, and as part of theresidential scheme on Green Lane,improvements will be made to the Kelhamgoyt. This will include dredging the mainKELHAM ISLAND PARK (‘SOUTH PIER PARK’)

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goyt, repairs to the goyt’s physicalinfrastructure (sluice gates, walls etc.), newsoft landscaping. The improvements alsocontain proposals for future ecological andlandscape management to ensure the goytbecomes an attractive and naturalenvironment for wildlife and is a sustainablegreen space for Kelham.

The creation of Kelham Square will alsoprovide a setting for future events in the area,either linked to the Kelham Island museum orindependent of it.

Access to Existing Open SpaceGiven that there is limited scope for new openspace in Kelham Neepsend, it is particularlyimportant that access to existing andestablished areas of open space will beimproved through better lighting and moreattractive pedestrian routes. For example, theRutland Road and Harvest Lane pedestrianroutes under the railway line are very poorand perceived as unsafe. If improved, theseroutes could provide better access to StanleyFields, a large and underused public spacethat has been identified in the BurngreaveHousing Market Renewal brief as havingpotential for better integration with theimmediate area.

Similar principles apply to other existing publicand green spaces that are within areasonable distance from Kelham Neepsend(e.g. Parkwood Springs and Ponderosa inCrookesmoor). Improved routes to thesespaces, and also improved routes to publictransport hubs serving these spaces, in termsof better lighting and signage will help localresidents access these well established greenspaces.

TIMESCALE: 2008 - 2012 FUNDING OPPORTUNITIES:

PRIVATE DEVELOPMENTS, SCC (SECTION 106)

Access to Proposed Green SpaceIn addition to existing green spaces identifiedabove, advanced proposals are in place fortwo innovative green spaces in Sheffield citycentre which are both within reasonabledistance of Kelham Neepsend:

St Vincent’s ParkThe park will be Sheffield’s first publicpark/open space located on top of a multi-storey car park with a green facade. Thestructure will also incorporate commercialspace, residential units, public lift and a newstepped pedestrian route.

Nursery Street ParkAs part of the public realmimprovement for WickerRiverside it is proposed tocreate an area of informallandscaping on the riversideat Nursery Street. It isenvisaged that part of theopen area will be steppeddown to the river to improveaccess for fishing and watersports and the scheme haspotential to contribute to floodprevention.

STANLEY FIELDS

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PROPOSED GREEN SPACE, NURSERY STREET

ST. VINCENT’S PARK

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5.3.3 Public Art Public art can play a key role in unifying thepublic realm and helping to enhance andreveal the unique character of KelhamNeepsend. A vibrant vision and aspiration forpublic art that engages with the historic andcontemporary uses of the area can have apositive impact on the area’s economicdevelopment and regeneration.

It is proposed that a holistic and strategicoverview is adopted for the provision of publicart in Kelham Neepsend, rather than adevelopment-specific one. This is for thefollowing reasons:

� On-site works of public art are notappropriate to all developments and, inorder to gain the maximum benefit, thisaction plan proposes an option tocommission works off-site (but within theaction plan area) and the pooling of fundsto create works within the public realm.

� For a coherent and integrated approachthat supports a long-term vision for thearea and builds on the success of publicart in Sheffield.

� To give confidence to developers that thereis a clearly agreed plan for theadministration and use of funds fromDevelopment Agreements to enhanceKelham Neepsend, to add value, and toattract additional investment.

Whilst not restricting opportunities for artists,public art initiatives and proposed principlesinclude:

� The unification of the public realm.

� Heightened awareness of the river and thegoyt.

� Increased connectivity –lighting of bridges,signage, points of orientation.

� Heritage – preserving, interpreting,revealing, materials, processes, crafts.

� Craft and artists’ workshops.

� Vibrant activity – street banners forfestivals, events, temporary art works todraw attention to features, events,manufacturing, social history.

� Public art that is relevant to the growingresidential community and to other distinctactivity in Kelham Neepsend, for examplethe real-ale pubs and micro-breweries.

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55..44 PPUUBBLLIICC SSAAFFEETTYY

5.4.1 LightingThe lighting levels in the relatively newresidential area of Kelham Riverside arebelow those normally found in longer-established neighbourhoods. This is in parta legacy of the area’s former industrial rolewhere lighting requirements are generallylower than for residential areas. Theconsultation process also revealed that localresidents have safety concerns relating tolighting. As such, there is a clear need toimprove the quality of street lighting in thearea, particularly where residentialdevelopment is focused.

Where new street-lighting is proposed, eitherby the City Council Street Lighting section oras part of a new development, the followingprinciples should apply:

�Wherever possible, reduce the number oflighting columns and encourage wallmounted lighting fixtures.

� On listed buildings, new lighting shouldmatch any existing original equipment interms of look and quality.

� To address public safety concerns, agradual shift from traditional sodiumlighting to white lighting should beimplemented, with priority given to keypedestrian routes, particularly thoseleading to public transport hubs and otherlocal facilities. The images below showtypical examples of the benefits ofreplacing low level sodium lighting with

white lighting. In addition tosafety benefits, the switch tothis type of lighting will alsoresult in power saving and amore economically efficientsystem.

TIMESCALE: ONGOING

FUNDING OPPORTUNITIES: PRIVATE DEVELOPMENTS,

SCC

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5.4.2 City Centre Ambassadors

It is acknowledged that the area does have anumber of anti-social behaviour problems,and in recognition of this the City CentreAmbassador initiative has been extended intoaction plan area. The Ambassadors, highlyvisible in their distinctive uniforms, haveestablished a permanent base in KelhamNeepsend area and, working closely with thepolice, patrol the area on foot betweenmidday and 10 p.m. Strong links havealready been established between theAmbassadors and the business andresidential communities in the area, with thekey roles of the Ambassadors including:

� To report, monitor and, where necessary,issue Fixed Penalty Notices for littering, fly-posting and graffiti

� To be a source of information andassistance to the general public withreference to all aspects of the area

� To liaise with the local community andstakeholder groups in order to increasecommunity involvement and to promote thearea and its environment.

� To assist in the reduction of street crimeand the fear of street crime by working inpartnership with agencies such as SouthYorkshire Police

�When required to provide verbal andwritten evidence in support of any legalaction.

� To assist in the collection of information,subsequently turned into intelligence, to beused in the fight against street crime andanti social behaviour.

� Referral of vulnerable people toappropriate support and health agencies

It is anticipated that the Ambassadors’ long-term presence in the area will be critical asKelham Neepsend becomes more establishedas a residential community and as a place towork and visit. The extension of theAmbassador scheme has to date beenfunded by voluntary contributions from thedevelopers of residential schemes in theKelham area. Contributions from futureresidential schemes in the action plan areawill continue to be negotiated at the rate of aone-off payment of £200 per residential unit.

In addition to this, and in reaction to theconcerns of businesses in the area regardingthe safety of their staff, it is also proposedthat a contribution to the Ambassadorinitiative will be negotiated with the developersof commercial accommodation in the area.Based on research carried out on behalf ofthe regeneration agency EnglishPartnerships, it is estimated that one workerin an industrial unit would requireapproximately 30 sq m of working space,whilst an officer worker would requireapproximately 20 sq m. It is proposedtherefore that a minimum contribution of £200for every 30 sq m of industrial developmentand £200 for every 20 sq m of officedevelopment will be negotiated with thedeveloper.

AMBASSADORS PATROLLING THE KELHAM NEEPSEND AREA

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To remove uncertainty, and to ensure asustainable level of support to ensure thecontinued presence of the Ambassadors inthe area, it is proposed that the contributionsoutlined above are secured through Section106 agreements.

TIMESCALE: 2007 - FUNDING OPPORTUNITIES: PRIVATE DEVELOPMENTS

55..55 TTHHEE RRIIVVEERR The River Don, and the historic Kelham goyt,is one of the area’s most valued features, andis an economic, leisure, environmental andeducational asset and adds a very distinctquality to Kelham Neepsend. The Upper DonRiver Access Study (2007) acknowledges thisand proposes that access to the river isimproved and maintained. This action plansupports the principle of providing betteraccess to the river and of making better useof this important asset, and a number ofinterventions are proposed:

5.5.1 New DevelopmentsWhere future riverside developments areproposed, the City Council will negotiate withdevelopers to secure access to the river aspart of their development. If direct access isnot required or cannot be integrated into the

development, a financial contribution will beagreed which will be spent elsewhere in theaction plan area to improve existing, orprovide new, access to the river. Newdevelopment will also respond positively withthe river by facing it and interacting with itwhilst respecting and enhancing thedistinctive nature of the waterway.

Riverside development may also be requiredto deal with intrusive species such asJapanese knot-weed, and to bring abouthabitat improvements such as otter holts,kingfisher holes and tree planting.

5.5.2 FloodingFor development proposals in areas affectedby the floods in June 2007, please refer toSection 5.2.6.

The Kelham Island Industrial Museumsuffered significant levels of damage duringthe floods with a loss of large stretches of itsflood defences. To guard against futureflooding, public funding will be sought toimprove the flood wall between the museumand the river.

5.5.3 New River CrossingsProposals are in place for the creation of

three new river crossings in the KelhamNeepsend area:

The New Brooklyn BridgeThe Upper Don walk is a proposed six-milewalk between the City Centre andOughtibridge. The sections that have so farbeen achieved include a stretch betweenLady’s Bridge weir (The Wicker) and BoroughBridge (Corporation Street), and also sectionscompleted as part of private sectordevelopments on Alma St and NeepsendLane.

The proposal to erect a 1/10th scale replica ofNew York’s Brooklyn Bridge between KelhamIsland and Brooklyn Works is part of theUpper Don riverside walk. This bridge will notonly provide better access to the river, it willalso stand alone as a visitor attraction and

THE NEW BROOKLYN BRIDGE

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bring more people into the area. Itscompletion will allow pedestrians and cycliststo pass through the heart of Kelham Islandand past the museum for the first time.

TIMESCALE: 2008 FUNDING OPPORTUNITIES:

UPPER DON WALK TRUST/CITY

COUNCIL/PRIVATE

Kelham Island Museum toMowbray StreetAn aspirational objective of Sheffield IslandMuseum Trust is the construction of a newfootbridge linking Kelham Island to MowbrayStreet. The recently listed back-to-backhouse on Mowbray Street could potentially berestored to provide an educational andheritage resource. If this is achieved, the newbridge would in effect link the Museum, whichshows how people used to work in the area,to the back-to-back which would show howthey lived. The bridge would also form part ofa heritage trail through the area and coulddeliver economic benefits to the museum andSCEDU (Sheffield Community EnterpriseDevelopment Unit) on Mowbray Street. It willalso improve access to public transportroutes.

TIMESCALE: 2009/2010 FUNDING OPPORTUNITIES:

SCC/PRIVATE/KELHAM ISLAND MUSEUM

Neepsend Lane to Waterloo WalkA financial contribution has been securedfrom the developer of the Derwent Housingscheme on Neepsend Lane towards a newbridge linking the residential development toWaterloo Walk on the West bank of the river.This proposed new river crossing will furtherimprove the permeability of the area andcreate better access to public transport andlocal facilities.

TIMESCALE: 2009/2010 FUNDING OPPORTUNITIES: SCC/PRIVATE

5.5.4 River Stewardship SchemeFunding has been secured to establish aRiver Stewardship scheme encompassing theriver Don between Kelham Island and TinsleyViaduct. The project is a partnership betweenSheffield City Council, The EnvironmentAgency, Groundworks, Sheffield Wildlife Trustand the Five Weirs Walk Trust aimed atengaging local businesses and trying toencourage investment to improve the rivercorridor. The project will also work closely withresidents to allow them to become directly

involved in improving the river throughcommunity volunteer days as well asorganising events and educational eventsalong the river. The stewards will undertakeregular patrols, providing a uniformedpresence, giving a point of contact andmonitor any potential issues to ensure thesustainability of the river corridor as animportant asset to the city.

TIMESCALE: ONGOING

FUNDING OPPORTUNITIES: SCC/PRIVATE/COMMUNITY FUNDING

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5.5.5 Kelham Water Wheel The original Kelham Island water wheel isone of the earliest uses of waterpower inSheffield and is thought to date back to the11th century. Whilst the original water wheelno longer exists, the water wheel pit togetherwith a water supply from the goyt remainsand presents an opportunity to reintroducethe use of waterpower into Kelham. The

feasibility of installing a modern, state of theart waterwheel in the old pit and using it togenerate electricity has been undertaken,and the potential for local businesses (forexample the Kelham Brewery) to use thepower generated is also being explored. Thepotential to power the lighting of publicspaces in the immediate area, in particularthe new Kelham Square adjacent to the FatCat pub, will also be discussed with private

developers. In addition to providingrenewable energy for local use, the restoredwheel, using contemporary micro-hydrologytechnology, can become both ademonstration project and a visitor andeducational attraction.

TIMESCALE: 2008-2009 FUNDING OPPORTUNITIES:

SCC/PRIVATE/INCOME GENERATION

PHOTOMONTAGE OF KELHAM WATERWHEEL

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5.5.6 Bridges and Weir

The action plan area is unique to Sheffield inthat it contains three Grade II listed bridges(Ball Street Bridge, Rutland Road Bridge andBorough Bridge on Corporation Street) and a12th Century Grade II listed weir. Theposition and functionality of the weir presentslittle opportunity for intervention, other than adesire to keep it free from debris, somethingachievable by the River Stewardship Scheme.The proposed Brooklyn Bridge will alsoprovide an excellent viewing platform for theweir.

The three listed bridges do however have areal potential to become landmark features inthe area, and the images above demonstratethe effect that could be created withimaginative lighting and the removal ofunwanted vegetation. This idea fits within thelarger context of proposals for similarimprovements to Lady’s Bridge and theWicker Viaduct.

TIMESCALE: 2008 FUNDING OPPORTUNITIES:

SCC/PRIVATE SPONSORSHIP

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55..66 TTRRAANNSSPPOORRTTAATTIIOONN AANNDD AACCCCEESSSSThe completion of the northern section of the Inner Relief Road(IRR) in late 2007 is the most significant and influential trafficmanagement development in the city in recent years and will havesome impact on Kelham Neepsend.

A change in traffic management of this scale will require carefulmonitoring to assess its performance, and as such a review of theoperation of the IRR will be carried out post-completion, including itsimpact on access to and from Kelham Neepsend.

In view of the current and proposed residentialdevelopments in the Kelham Island area, thereis a need to consider a variety of transport andhighway issues including vehicular, pedestrianand cycle access. The action plan area fallswithin the City Council’s peripheral parkingzone and as such, given the level of currentand proposed residential development activity,as well as from community parking in the area,there is a recognised need for parking controlsin the future.

To ensure that local needs are fully considered,it is proposed that a transport working group isestablished and will be composed of citycouncil officers and representatives from thelocal community. This working group will assistthe City Council to develop proposals thatcould be funded by contributors secured fromdevelopments in the area.

TIMESCALE: 2008 - FUNDING OPPORTUNITIES: SCC

(SECTION 106/278)

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Proposal Theme Timescale Funding Opportunities Delivery Agency

South Pier Park (p23) Open Space 2009/2010 Private/SCC Kelham Island Museum

Improved Lighting (p27) Public Safety Ongoing Private/SCC SCC

City Centre Ambassadors (p28) Public Safety Ongoing Private SCC

Brooklyn Bridge (p29) River 2008 UDWT/SCC/Private UDWT/SCC

Mowbray Street Bridge (p30) River 2009/2010 Museum/SCC/Private Museum/SCC

Waterloo Walk Bridge (p30) River 2009/2010 SCC/Private SCC/Private

River Steward Scheme (p30) River Ongoing SCC/Private/Community SCC

Kelham Water Wheel (p31) River 2008/2009 SCC/Private SCC

Bridges & Weir (p32) River 2008 SCC/Private SCC

Transportation and Access (p33) Transportation 2008 - SCC/Private SCC

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6. TOURISM AND VISITOR ATTRACTIONS

The City Council willcontinue to work withits partners, and thelocal communitythrough the KelhamIsland CommunityAssociation (KICA)and otherorganisations, todevelop KelhamNeepsend as a placeto visit. In addition toattractions centredon the river outlinedabove, other optionsto be explored in more detail include:

� The role and promotion of the KelhamMuseum and surrounding area.

� Heritage walks, Furnace Trails etc.

� Building on existing activity, the promotionof brewing as a growth sector in KelhamNeepsend.

� Creation of a pub/restaurant circuit linkedwith the Wicker and Victoria Quays.

� Public events such as music festivals andthemed markets.

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DEVELOPMENT CONTROL (BUILDING) (0114) 273 3641

DEVELOPMENT CONTROL (HIGHWAYS) (0114) 273 6368

URBAN DESIGN AND CONSERVATION (0114) 273 4223

SHEFFIELD DEVELOPMENT FRAMEWORK (0114) 273 4222

KELHAM ISLAND COMMUNITY ALLIANCE (0114) 273 5130

7. COMMUNITY INVOLVEMENT

As part of the Action Plan process,comprehensive consultation of residents andbusinesses was carried in September 2006.This initial consultation only marked thebeginning of community engagement in thearea, and the recently formed Kelham IslandCommunity Association (KICA) presents anopportunity to continue the dialogue with localstakeholders. In particular, KICA will be auseful forum for local residents andbusinesses to comment on:

� Future reviews of the action plan.

� The contents of briefs for further feasibilitywork.

�Major planning applications in the area.

� Use of funding, such as developercontributions and community fundingsecured by KICA through the local AreaPanel.

� Promotion of the area, future events etc..

36

CONTACTS

This document can be supplied in alternative formats, please contact:Development, Environment & Leisure Directorate

Development ServicesTel: 0114 273 5130

www.sheffield.gov.ukDP5127