North of Town Masterplan (Revised).

STATES OF JERSEY

NORTH OF TOWN MASTERPLAN (REVISED)

Lodged au Greffe on 19th July 2010

by the Minister for Planning and Environment

STATES GREFFE

2010   Price code: C  P.103

PROPOSITION

THE STATES are asked to decide whether they are of opinion

to endorse the intention of the Minister for Planning and Environment to adopt the North St. Helier Revised Masterplan dated 19th July 2010 (at Appendix 1 to this proposition) as an agreed development framework.

MINISTER FOR PLANNING AND ENVIRONMENT

Notes:  1.  This proposition replaces P.57/2010, which is withdrawn.

2.  The Appendices to this proposition are published separately.

REPORT

BACKGROUND TO THE MASTERPLAN

Introduction

1. Since 1995, there have been repeated calls for a Town Park to be created on the site of the Old Gas Works as a way of marking the Millennium, and numerous ideas and plans have been suggested as to how this should happen.
2. However, whilst they have all been proposed with the best of intentions, they have failed to address fundamental principles such as how the new park can be stitched into the existing urban fabric and become an integral part of the town, and how the project, including the provision of alternative parking, can be funded.
3. This Masterplan is the first attempt to put the new park into its proper urban context, which respects the townscape and creates a park that repairs the urban character of this part of the town, creating a meaningful open space that is available to all, but in particular that the residential community of the area can use and enjoy. By creating additional linked amenity space on nearby or adjoining sites it significantly increases the amount of open amenity space in other parts of the area.
4. The Masterplan centres on the site of the proposed Town Park and covers the area from Rouge Bouillon in the north to West's Centre in the south, and St. Saviour 's Road in the east to Halkett Place in the west.
5. In March 2009 the Minister for Planning and Environment appointed Hopkins Architects, in conjunction with Robert Townshend Landscape Consultants and prominent local firm Naish Waddington Architects, to prepare a Masterplan for the northern part of St. Helier .
6. Hopkins  Architects  is  one of  the  top  architectural  and  masterplanning practices in the world and have won many international accolades for their pioneering, often complex, high quality projects. In consultation with local architects  Naish  Waddington,  the  practice  developed  a  Masterplan  of  the highest quality for the future development of the north part of town.
7. Hopkins' plan demonstrates their careful understanding of how this part of town evolved, how it currently works and their expert interpretation of how it could work in the future. Their plan demonstrated how a new urban park can be carefully stitched into the fabric of the town to repair the townscape and provide meaningful space for the people who live there and those who pass though  the  area  daily,  be  they  shoppers,  commuters,  school-children  or tourists.
8. The recent decision, following the debate on the Connétable of St. Helier 's proposition,  to  keep  the  Town  Park  site  free  of  development,  and  the commitment of the Council of Ministers to commence construction of the Park in 2010 and complete it in 2011, has caused the Minister for Planning and  Environment  to  re-appraise  the  proposals,  and  to  engage  with  the landowners of large sites close to Town Park to evaluate the contribution they

can make towards achieving the original aims of the Masterplan. Several meetings  have  taken  place  since  the  start  of  2010  between  the  Planning, Transport and Technical Services and Property Holdings Departments, with the owners of Le Masurier's, Jersey Gas and the Jersey Brewery about their own proposals, and how they might contribute to the aims of the Masterplan.

9. The earlier public consultation on the Masterplan produced many thoughtful and encouraging comments which have helped to refine the final version of the Revised Masterplan and the Minister for Planning and Environment now seeks endorsement from the States Assembly for its adoption.
10. Appendix 1:

The Amended Masterplan (the Appendices to this proposition and report are published separately).

THE MASTERPLAN CONSULTATION

11. Work  on  the  Masterplan  commenced  in  March  2009  and  the  draft  was published for public consultation on 26th September 2009. Comments were invited on the following issues:
12. The principle of regenerating the Northern part of Town.

The redevelopment of Ann Court to include residential development

around  3 sides,  enclosing  a  central  public  open  space,  with underground shoppers' and residents' parking.

The  creation  of  a  new  town  park,  with  perimeter  residential

development and underground commuters' and residents' car parking; The  redevelopment  of  Minden  Place  car  park  with  a  mixed  use

development with public open space.

Environmental  improvements  to  Bath  Street  and  David  Place

consisting  of  a  one-way  north-bound  traffic  flow  with  wider pavements and landscaping.

The redevelopment of the Parish of St. Helier 's Belmont Gardens car

park which proposed a small residential development and public open space.

The  creation  of  new  pedestrian  routes  to  connect  Bath  Street  to

Halkett Place, and Gas Place to Belmont Road.

The redevelopment of Green Street car park to provide additional

commuter and residential parking to replace that lost in Gas Place, and residential development.

The Public Response to Consultation

13. The  public  consultation  took  place  over  3 months  and  attracted  over 450 responses,  obtained  from  public  exhibitions,  surveys  and  written responses.
14. The Public supported –

The principle of regenerating the North of Town;

The principle of providing more public open space in the town; The provision of a town park on the Gas Place and Talman sites; The creation of underground parking;

The  redevelopment  of  Ann  Court  for  residential,  open  space  and

underground parking uses;

The provision of open space and commercial development at the site

of Minden Place car park once the car park reaches the end of its design life;

Environmental  improvements  to  Bath  Street  and  David  Place  and

increased pedestrian permeability;

The provision of mixed-tenure housing to include affordable, social

rent and homes for the elderly; and

The  principle  of  funding  the  public  amenity  and  environmental

improvements from development receipts.

15. Concern was expressed over –

The development of buildings on the Talman site and Gas Place and

the impact this would have on the size of the park.

The loss of parking for residents and businesses at Gas Place, with

potential  damage  to  the  viability  of  existing  hotels  and  small businesses in the area as a result of less parking for clients. Extending parking capacity for commuters at Green Street car park was not considered to be a reasonable alternative.

The loss of parking at Minden Place which would be a problem for

the elderly and infirm.

The creation of a one-way system in Bath Street, which could be

detrimental to emergency services and existing businesses.

The construction of buildings on Belmont Road car park which would

be detrimental to neighbouring residential property.

Picnic in the Park Event

16. In addition to the Minister's formal public consultation, the Millennium Town Park Support Group held the Picnic in the Park event, which resulted in 230 comments and provided the following indication –

17.

Nearly everyone who commented (221 people) supported the idea of

creating open space in the town;

95 people specifically wanted a park with no new development on the

site;

Only 10 people disagreed or felt the money should be spent on other

things.

Ann Court Petition

18. On  27th  November  2009,   Deputy  J.A. Martin  of   St. Helier  lodged  a proposition  (P.202/2009)  containing  and  supporting  a  petition  containing 2,588 signatures opposing the (then) proposal to construct an above-ground multi-storey car park on the site of Ann Court (to replace the spaces lost at the Town Park site and Minden Place car park). The Deputy 's proposition, which the States agreed, was to abandon the car park proposal and charged the Council of Ministers to bring forward alternative proposals for the Ann Court site as part of the North of Town Masterplan.

THE REVISED MASTERPLAN CHANGES

Open Space

19. The overwhelming message from both the Minister's consultation, and the Picnic in the Park event, was that more public open space should be created in the town. Accordingly, the proposals to include housing development on the Gas Place, Talman and Belmont Gardens sites have been removed.
20. However, development is proposed on the Jersey Gas site at the western end of the Town park site for the following purposes –

To regenerate the area, particularly the residential community, which

will help the Island's housing needs;

To repair the townscape by providing attractive, appropriate scale,

buildings  for  that  part  of  the  town.  The  buildings  will  provide  a framework to the Town Park and in townscape terms will provide a counterpoint to the enclosure provided by the Odeon Cinema at the western end of the new town park;

To  provide  people  policing'  to  ensure  a  safe  community

environment, all of the time, through natural surveillance of the Town Park;

To help revitalise that part of the town, providing a community focal

point, where people can meet and relax; and

To  generate  economic  benefits,  employment  and  activity,  through

increased property values, cafes, restaurants, open air events and so on.

21. The Masterplan seeks to deliver over 9 vergées of new public open space as shown in the table below. In addition, the development of the Jersey Gas site, the Jersey Brewery site and the Le Masurier's site will increase these figures

Approximate areas of new public open space

Town Park  12,710m² 7v Belmont Gardens  550m² 0.3v Ann Court  2,480m² 1.36v Site of Minden Place CP  260m² 0.14v Facing Old Fire Station  400m² 0.22v

Total  16,400m² 9.02v

In addition, the development of the Jersey Gas site, the Jersey Brewery site and the Le Masurier's site will increase these figures.

Pedestrian and Cycle Links

22. The Revised Masterplan proposes a number of new or improved pedestrian and cycle linkages through the north of Town area. These include –

A  major  route  running  north-south  along  Oxford  Road,  from

Springfield Stadium to the Town Park, extending across the Park to Belmont  Road,  Providence  Street,  Ann  Court  and  Peter  Street  to West's Centre;

A link from the Town Park, past the Odeon and Old Fire Station to

Halkett  Place,  provided  as  part  of  the  development  of  the Le Masurier's and Odeon sites, and properties owned by the company to the west;

A  link  from  the  Town  Park  through  the  Jersey  Gas  site  to

St. Saviour 's Road;

A link from the Town Park, south to Belmont Place, then east to

St. Saviour 's Road as part of the development of the Jersey Brewery site; and

A link from the Town Park, via the Wine Warehouse and the former

Le Masurier's  warehouse,  then  past  the  new  Salisbury  Crescent development to the bottom of Wellington Road.

Car Parking

23. The loss of public car parking from Gas Place was a major concern and the originally proposed alternative for commuter parking at Green Street was considered  to  be  too  far  from  the  area  it  serves.  Accordingly,  the redevelopment of Green Street car park has been completely removed from plan,  parking  beneath  Ann  Court  has  been  increased,  and  the  provision originally intended below the Town Park, will now be made up as part of the development  of  nearby private  sites,  including  the  Jersey  Gas  and  Jersey Brewery sites.
24. Although Green Street car park has been removed from the plan, it is clearly an opportunity site for the States which will come forward as a separate development initiative in the future.
25. Minden Place car park remains a popular and convenient shopper car park, and will remain in use until it reaches the end of its design-life in 2020. However, its capacity will by then have been replaced at Ann Court, some 160 metres away.
26. The  proposed  underground  car  parks  are  based  on  traditional  basement construction and conventional parking format. However, there are parking systems  using  state-of-the-art  technology  which  can  significantly  improve operational efficiency and reduce costs. Accordingly, if the plan is endorsed by the States, the Minister for Planning and Environment will ensure that the most  appropriate  and  cost-effective  approach  to  underground  parking  is adopted.

Ann Court

27. The proposition P.202/2009 was considered by the States on 10th March 2010 when it was agreed that the proposal to develop Ann Court for an above- ground multi-storey car park should be abandoned. The Revised Masterplan proposes  400 underground  car  parking  spaces  for  shoppers (285)  and residents (115).

Minden Place

28. The  relocation  of  Minden  Place  car  park  to  Ann  Court  was  a  concern particularly  for  disabled  drivers.  Accordingly,  it  is  proposed  that  the redevelopment scheme incorporates 10 disabled, short-stay car parking spaces at street level. The Revised Masterplan proposes 25 underground car parking spaces for residents only and 10 on-street spaces for disabled drivers.
29. In summary, proposed future public parking will be provided as shown in the table below.

30. The numbers of shoppers' car parking spaces increases and of commuter spaces reduces. The reduction in commuter spaces is in line with the Draft Sustainable Transport Policy and is supported by Transport and Technical Services.

THE MASTERPLAN

Key intervention sites

31. The Masterplan takes a pragmatic look at the interventions that can be made and sites that can be developed by the States themselves.
32. There  are  several  sites  owned  by  the  Public  and  privately-owned,  the development  of  which  can  be  co-ordinated  to  achieve  the  aims  of  the Masterplan. A balance between the costs of public realm improvements and the capital released from States development and contributions from private developments has been sought, with the intention that the developments will finance the public realm and parking improvements.
33. It is considered important that the States can actively start development with its own funding stream without reliance on private finance. The States will take an active role to pump-prime the regeneration of the north of town area by creating the Town Park and redeveloping Ann Court. The Jersey Gas company has indicated that it is prepared to release its site for development, as part  of  an  arrangement  where  the  company  relocates  its  operations  from Tunnell Street to States land at la Collette. This pro-active approach will send a clear signal to local landowners that the North Town is an area worth investing in.
34. The improved public realm, reduced traffic congestion, new parks and new developments  will  set  the  quality  benchmark  for  other  future,  privately financed developments.

Privately-owned development sites

35. Other privately-owned potential development sites have been looked at as part of the preparation this Masterplan, and discussions have taken place with most of the owners. Advice has been given on use and massing. The consultation has already prompted a number of key private landowners to think about

redevelopment and discussions have taken place in advance of the Masterplan being  endorsed  by  the  States.  The  sites,  and  the  outline  design  and development guidance, comprise Appendix 3

Housing

36. The  original  Masterplan  brief  (March  2009)  asked  for  100 lifelong  and sheltered homes. Overall, the housing development proposed on Ann Court would yield around 180 two-bedroom apartments, although the actual mix of units and tenure will be decided when the schemes are implemented under the policies of the existing or new Island Plan.
37. All  private  residential  development  sites  identified  on  the  Masterplan Proposals  Map,  which  do  not  already  have  planning  permission,  will  be required to provide affordable housing at the rate of 12.5% of the total number of homes provided.
38. This  requirement  will  apply  immediately  after  the  Revised  Masterplan  is adopted. This rate will increase to 20% over the first 5 years of the new Island Plan, following its adoption.

Public realm improvements

39. Public realm interventions proposed by the Masterplan can be summarised as follows –

Reinforcing  and  part-pedestrianising  the  main  artery  in  the  north

town – Bath Street and David Place.

Creating new pedestrian and cycle routes as part of States and private

development schemes.

Locating public spaces on pedestrian routes.

Locating car parks, where feasible, below ground to free up space

above ground for public realm and beneficial development.

Considering  the  creation  of  additional  routes  north-eastwards  for

residents and school children as part of future developments.

The particular needs of children in this area were highlighted during

the consultation. Many of them live in apartments and bed-sits with no access to safe open space or private gardens. Family friendly local parks, gardens and squares, carefully planned throughout the area and linked by a safe pedestrian route, are therefore vitally important for this area.

40. A safe pedestrian and cycle route which links Springfield stadium with Snow Hill is illustrated on the Masterplan.

KEY SITE PROPOSALS

41. The following sites have specific proposals in the Revised Masterplan:

Gas Place and Talman sites

42. These  sites  will  deliver  the  new  Town  Park,  although  there  will  be  no underground car parking or perimeter residential development as outlined in the original Masterplan.
43. Remediation of the site is likely to commence towards the end of 2010, and will be followed by laying-out the Town Park which will be completed during 2011.

Ann Court

44. The  Revised  Masterplan  proposes  15,000m²  of  housing  development (approximately  200 dwellings),  enclosing  public  open  space,  with 400 underground car parking spaces for shoppers and residents.

Minden Place car park site

45. This site is suitable for residential use on the upper floors, and retail and/or food and drink use on the ground floor. The development should be 4 storeys. The  Revised  Masterplan  proposes  approximately  30 residential  units  with 25 underground car parking spaces for residents only and 10 on-street spaces for disabled drivers. A small south-facing public square is proposed as part of this development fronting Minden Place.
46. The  existing  car  park  has  a  possible  10 years  of  life  before  it  requires replacement, and will remain in place for this time. If Minden Place car park were retained into the long term, it would mean continued traffic congestion associated with the need to draw traffic right into the centre of town through congested  streets.  However,  by  relocating  the  shoppers'  car  park  to  Ann Court, this allows more direct access from the ring-road, reducing the need for cars to enter the centre of town.
47. The following proposed environmental improvements then become possible – Minden Place can become a narrower road with wider pavements and

on-street disabled parking and a more pedestrian-friendly crossing at the Bath Street junction.

Bath Street and David Place can become one-way (heading north),

allowing the enlargement of pavements and the substantial reduction of traffic volumes. This becomes feasible when the shoppers' car park access is no longer from Bath Street.

Jersey Gas site

48. This large site is suitable for a significant new development for residential or other purposes, should it become surplus to the Gas Company's requirements. This will only occur if the company can extend its site at La Collette onto

States land. Discussions have taken place with the International Energy Group (the parent company) which has indicated a willingness to work with the States to achieve the States and its own commercial objectives.

49. The  Revised  Masterplan  proposes  24,000m²  of  housing  development (approximately  250–300 dwellings),  enclosing  public  open  space,  with underground car parking spaces for residents.
50. Any new buildings should be predominantly 5 storeys and will enclose further open amenity space and provide a pedestrian route to St. Saviour 's Road. A review  of  the  existing  listed  buildings  on   St. Saviour 's  Road  will  be undertaken to see if they merit their listing.
51. The site will be required to deliver 125 car parking spaces for general public use, which will be subject to a management agreement with Transport and Technical  Services.  The  site  must  be  fully  remediated  as  part  of  the redevelopment.

Partial pedestrianisation of Bath Street/David Place

52. By making Bath Street and David Place one-way for north-bound traffic only, the pavements can be widened, trees introduced and shared-space principles adopted. Future consideration will be given to extending this approach to Stopford  Road,  Victoria  Street,  Val  Plaisant  and  St. Mark's  Road.  The achievement of this aim is dependent on the eventual removal of Minden Place  car  park,  and  on  the  amount  of  traffic  likely  to  be  generated  by development of the Le Masurier's site.
53. Should it not prove possible to make Bath Street and David Place fully one- way, there will still be the opportunity to achieve street improvements.

Bath Street to Halkett Place link

54. A pedestrian route can be created that connects Bath Street with Halkett Place to provide a much-needed east-west connection in this area. This link will require development of Le Masurier's Bath Street and Odeon Cinema sites, including properties to the west of the Nelson Street car park site.

Belmont Gardens

55. This  Parish-owned  site  currently  used  as  the  market  traders'  car  park  is suitable for redevelopment as a small local park, providing around 2,500m² of public open space. This project can go ahead once parking provision for the market traders is made available in Ann Court, the Jersey Gas site or the Le Masurier's site.

Nelson Street car park site

56. This site is suitable for residential use and open space, possibly associated with the Old Fire Station and the development of the Odeon Cinema.

57. Proposals for the development area must ensure that the front of the Old Fire Station building is set within an appropriate urban setting, with suitable public space in front and furthermore, a route is provided that connects Bath Street with Halkett Place to provide a much needed east west connection in this area. This link is dependent on the development of the Le Masurier's and Odeon sites being approved, when submitted as an application.

Planning guidance for other sites within the Masterplan Area

58. There  are  numerous  sites  ripe  for  redevelopment  in  northern   St. Helier , totalling around 220,000m².
59. All  private  residential  development  sites  identified  on  the  Masterplan Proposals  Map,  which  do  not  already  have  planning  permission,  will  be required to provide affordable housing at the rate of 12.5% of the total number of homes provided.
60. This  requirement  will  apply  immediately  after  the  Revised  Masterplan  is adopted. This rate will increase to 20% over the first 5 years of the new Island Plan, following its adoption.
61. The Masterplan makes specific recommendations for the following sites: Former Le Masurier's Warehouse
62. As a going concern, this site could retain its existing warehouse use. However, if  this  site  was  to  be  redeveloped,  it  could  offer  an  alternative  site  for residents' car parking or an opportunity for residential development. Future development should be contained within the existing building heights.
63. Any  development  should  include  a  pedestrian  route  linking  the  Salisbury Crescent site with the historic buildings on the wine warehouse site, through to the Town Park on Gas Place.

Wine Warehouse

64. Redevelop existing historic structures suitable for small-scale retail together with food and drink use.
65. Any new development should be sympathetic to the scale and materials of the existing historic structures and include provision for the proposed pedestrian route from Salisbury Crescent to the proposed town park.

Britannia Place site

66. This site could be developed as a new 3 storey commercial/residential scheme with the main facades presented towards the new park. The property is in multi-ownership which may militate against a comprehensive redevelopment. It is hoped that the added-value of a view over the park, and the opportunity to increase the yield with a further floor of development will overcome this potential problem.

67. Consideration  will  be  given  to  establishing  design  codes  to  guide  future development for this project.
68. In redeveloping this site, service access should be provided from Tunnell Street, and consideration given to closing Robin Place and incorporating it within the public realm of the town park.

Le Masurier's Bath Street and Odeon Cinema site

69. The development of these sites presents a significant opportunity to regenerate this part of the town. The site should be developed with a mixture of retail, office and residential development. On-site car parking provision should be limited to that necessary to serve the development itself.
70. Residential use in this location will help reduce the impact of cross-town traffic, which is a key component of the traffic strategy.
71. Le Masurier's Ltd. recently presented its proposals for the site, which include the demolition and redevelopment of the Odeon, to States Members.
72. Consideration is being given to the current listing of the Odeon on Bath Street and  whether  it  should  be  retained  on  the  list.  Notwithstanding  that reassessment, the proposals in their entirety can only be properly evaluated through  the  planning  application  process,  supported  by  retail  and  traffic impact  assessments.  An  application  is  anticipated  once  the  company  has completed  the  revised  impact  assessments  and  its  own  public  on-line consultation.
73. The grain of new development should be sympathetic to the existing urban grain as detailed in the St. Helier Urban Character Appraisal.
74. The development should provide improvements to the public realm in the form  of  public  open  space  and  pedestrian  permeability  and  should  be developed as part of an overall plan in conjunction with the Nelson Street car park site.

Former Jersey College for Girls

75. Proposals  for  residential  apartments  and  town  houses  are  already  in preparation. The site now includes the rear section of the site, which was formerly occupied by Centre Point. This increases the total development area of the site by more than 60% to 3.4 acres and as such offers one of the largest residential  regeneration  opportunities  in  this  part  of   St. Helier .  Further development opportunities may become available on the Mont Cantel site currently occupied by Janvrin School.

Le Bas Centre

76. This site could be considered for a suitable community use, for residential use or for public car parking. If residential, due attention should be given to the air quality  and  noise  issues  associated  with  the  proximity  of  the  site  to St. Saviour 's Road.

Wesley Chapel

77. This site has permission for a mixed use redevelopment with a public square facing Wesley Street. A proportion of any residential development will be required to be developed as affordable housing. The site could be developed in conjunction with the adjoining Le Coin site and warehouse.

Jersey Brewery site

78. The listed buildings on Ann Street and St. Saviour 's Road should be retained and the site redeveloped, possibly with a commercial development at ground floor. The heights of any new buildings on Ann Street and Simon Place will reflect  surrounding  buildings.  Development  could  be  considered  of  up  to 5 storeys within the centre of the site, and possibly 6 storeys to the west of the site to relate to the height of the listed Brewery Building.
79. The site will be required to deliver up to 100 car parking spaces for general public use, which will be subject to a management agreement with Transport and Technical Services.

Charles Street (south) sites – (Le Coin and warehouse)

80. These sites should be developed as a 4 to 5-storey residential scheme. Mayfair Hotel site
81. This  site  could  be  developed  for  residential  accommodation.  Any  new development should address the air quality and noise issues associated with locating residential accommodation near a main, and heavily trafficked, road. The development should be of 3 storeys adjacent to St. Saviour 's Road and Brooklyn Street, and up to 4 storeys on Ann Street.

Robin Hood Roundabout site (Springfield)

82. Subject to it being acceptable in traffic terms, consideration should be given to removing the Petite Rue du Val Plaisant and incorporating the land into an improved soft landscape area to the Springfield Stadium. The roundabout site would  be  suitable  for  multi-storey  long-stay  parking  or  parking  with residential use over. If residential use is considered, due attention should be given to the air quality and noise issues associated with the proximity of the site to the Springfield Road, perhaps by incorporating a set back with soft landscaping to the north of the site.

Masonic Temple Car Park site

83. The Masonic Temple car park site would be suitable for a 3-storey residential development.

Assessment of Traffic Implications

84. The  proposals  for  the  States-owned  sites  will  eventually  improve  traffic conditions in the Minden Place and Bath Street area, as the movement of shopper  car  parking  provision  to  Ann  Court,  the  Jersey  Gas  and  Jersey Brewery sites, and to a lesser extent the Le Masurier's site, will allow almost direct access to the ring-road and obviate the need for traffic to penetrate the town centre for access to Minden Place car park via Bath Street.
85. The emerging proposals for private sites will need to be considered carefully in the context of the cumulative impact of different developments on traffic generation. The proposals for the sites referred to in Appendix 3 and the Masterplan Proposals Map, which are predominantly for residential use, are likely to be relatively benign in their impact as most work and shopping journeys will be made on foot.
86. The combined impact of the proposed developments are being assessed by the Transport and Technical Services Department; the conclusions of which will be available to States Members before the States debate in September.

Financial Implications

87. The  Revised  Masterplan  is  significantly  different  from  the  Original Masterplan as far as funding is concerned, as the loss of development value on the  Town  Park  site  will  result  in  an  inability  to  fund  all  the  proposed infrastructure projects, such as car parking provision and street improvements, unless these can be achieved by the development of private sites. The original Masterplan would have effectively paid for itself, but the Minister is confident that the Masterplan is viable based on the proposed combination of private and States development.

Planning gain and Tariffs

88. It is proposed that the shortfall in car parking provision will be made up through private development projects, principally at the Jersey Gas and Jersey Brewery sites which can be directly accessed from the ring-road, although the Le Masurier's  site  may  also  contribute  additional  shoppers'  car  parking depending on the results of the traffic assessment. This is likely to involve the States in revenue rather than capital expenditure. All 3 sites will have the capacity overnight to accommodate parking by residents of the North of Town Area.
89. Developers of the private sites will be invited to make a financial contribution towards the public realm improvements proposed in the Revised Masterplan. These  will  be  negotiated  through  the  Planning  Obligation  Agreement procedure, and are based on the premise that developments will benefit from the creation of parks, other open spaces, improved pedestrian routes and more attractive streets.

90. The Revised Masterplan does not make any distinction between open market and affordable housing at this stage. Market housing at Ann Court would clearly  deliver  a  capital  return  to  the  States  which  can  fund  some infrastructure provision, but it would be necessary to find an alternative States site to accommodate affordable housing. Private residential development on the identified sites will be required to provide a proportion of affordable housing  in  line  with  the  draft  Island  Plan  Policy H3,  which  will  apply immediately after the Revised Masterplan is adopted. The requirement will be to provide affordable housing at the initial rate of 12.5% of the total number of homes provided. This rate will increase to 20% over the first 5 years of the new Island Plan, following its adoption.

CONCLUSION

91. In conclusion, the development and improvements proposed in the Revised Masterplan  afford  us  the  opportunity  for  the  States  to  pump-prime  the regeneration of the northern part of central St. Helier . Development by the States of public sites, and the associated developments of the Le Masurier's, Jersey Gas and Jersey Brewery sites will substantially increase the quantity and quality of public space and, for the most part, resolve car parking issues in the  area.  Repair  and  improvements  to  the  area  will  encourage  further development of privately-owned sites, which can also provide the benefits of public car parking and open amenity space. Housing development, not just for social housing, will increase the population in the area which will benefit retailers and service providers in the northern part of the town centre and David Place. Attractive and safe routes for pedestrians will permeate the area, and the proposals for Bath Street and David Place will have a traffic-calming effect as well as restoring the grandeur of this principle artery.

Senator F.E. Cohen

Minister for Planning and Environment

Hopkins Architects

Townshend Landscape Architects

WT Partnership

Transport and Technical Services, States of Jersey Planning and Environment, States of Jersey

North St. Helier Revised Masterplan

Issue to States of Jersey 19th July 2010

Hopkins Architects  North St. Helier Masterplan, Jersey

Setting the approach to the Revised Masterplan

The Revised Masterplan takes a pragmatic look at the  •  Creating informal routes northwards for pedestrians

interventions that can be made in the north of town area  and cyclists;

and sites that can be developed by the States and also

by private developers.  •  Considering the creation of additional routes north-

eastwards for residents and school children as part

Key intervention sites of future developments.

There are sites owned by the States which can  7 Springfield

be developed towards achieving the goals of the  The particular needs of children in this area were  Windsor  Primary

Masterplan. A balance between the costs of public  highlighted during consultation. Many of the children are  Crescent School

realm improvements and the capital released from  living in apartments and bedsits which have no external

development was originally sought, with the intention that  space or gardens. Apparently, they rarely leave the

the development will finance the public realm and parking  immediate area of the north town and as such have no

improvements. This is no longer possible from States  St. Mark's

owned sites alone, as there will no longer be profits  access to green space. Family friendly local parks are  Church

arising from development at the eastern end of the Town  therefore vitally important for this area. RStoSaviourute to Park site. However, the development of other sites will  St.  schools

contribute towards the provision of public infrastructure. Pedestrian and cycle routes linking the proposed and  Thomas'  Masonic

existing public realm are illustrated on the adjacent plan. Church Temple

The States will still take an active role to kick-start the

regeneration of the north of town area. This pro-active  The Revised Masterplan

approach will send a clear signal to local landowners  Before arriving at the original Masterplan proposal we

that the North of Town is an area worth investing in.  looked at multiple permutations and variations for the Key

Its improved public realm, reduced traffic congestion,  intervention sites. These were illustrated and explained  Methodist

new parks and new developments will set the  in Appendix B of the original Masterplan Consultation  Church

quality benchmark for other future, privately financed  Document. The decision to remove housing and

developments. underground parking from the Town Park site has clearly  6 5

caused a major re-think. The final Revised Masterplan

Development sites solution is illustrated at the end of this section.

Privately owned potential development sites have  The

been looked at as part of this Revised Masterplan, and  Odeon 4

advice has been given on use and massing. In addition,  Affordable housing

discussions have taken place with the owners of three  The brief for affordable housing has changed during the

large sites close to the Town Park to explore how theirs  development of the Masterplan as follows;

and the States objectives can be jointly met. The original Masterplan brief (March 2009) asked for  3 2

100 units. The redevelopment of Ann Court will probably  Fish

Public realm provide a mixture of affordable and market homes, but  Market

Public realm interventions proposed by the Revised  the affordable housing requirement could be off-set by

Masterplan can be summarised as follows: developing the affordable element on a different States-

owned site Central  1

• Reinforcing and part-pedestrianising the main artery  Market

in the north town, Bath Street and David Place; The Department of Planning & Environment has also  WCheaspleeyl

redefined the brief, as the Revised Masterplan includes a

• Locating public spaces en route to car parks; requirement to provide a 12½% proportion of affordable

housing on all private development sites.

• Locating car parks below ground to free up space

above ground for public realm and beneficial  N development;  0 50 100   200m

Site plan Key

Landmark and  Proposed public squares heritage buildings  Proposed key routes or parks:

Pedestrian and cycle  1 Springfield Park

Existing pedestrian route routes 2 Nelson car park

Possible additional  3 Town Park site

Schools 4 Ann Court

pedestrian and cycle routes 5 Belmont Gardens

6 Minden Place

7 Wesley Chapel

Hopkins Architects  North St. Helier Masterplan, Jersey

Key intervention sites

This design guidance must be read in conjunction with the character area design guidance contained within the Willie Miller Urban Character study dated February 2005.

KEY INTERVENTION SITES

These sites have specific proposals developed by the Revised Masterplan.

1. Partial pedestrianisation of Bath Street / David Place

By making Bath Street and David Place single lane for north bound traffic only, the pavements can

be widened, trees introduced and shared space principles adopted for design of public realm and road. Consideration should be given to extending this approach to Stopford Road, Victoria Street and St Mark's Road.

2. Bath Street to Halkett Place link

A route is to be created that connects Bath Street with Halkett Place to provide a much needed east west connection in this area. This link is dependent on the development of private land to the west of the Nelson Street car park site, and the Odeon and Le Masurier sites.

3. Gas Place and Talman sites

These sites together provide for a new town park providing approximately 7 vergees (12,710 sq.m.) of public open space.

4. Ann Court

This site is suitable for residential development of

up to 5½ storeys, a new 0.93 vergees (1,700 sq.m.) public square and a 400 space underground car

park including 285 spaces for shoppers to replace Minden Place car park. A further 0.43 vergees (775 sq.m.) of public space is provided in and around the development making the total space given over to the public realm as 1.36 vergees (2475 sq.m.).

5. Belmont Gardens

This Parish owned site currently used as a market

traders' car park is suitable for redevelopment as a small local park, providing 0.3 vergees (550 sq.m.) of public open space.

6. Minden Place Car Park

The existing car park is likely to remain in place until it reaches the end of its design life in 9 or 10 years.

The site is suitable for residential use on the upper floors, and retail and/or food and drink use on the ground floor. The development should be 4 storeys. A small market square, approx 0.14 vergees (260 sq.m.), will be included as part of this development which may be on Minden Street to the west of the site, or as a widening of the public realm on the Minden Place frontage. Approximately 25 no. parking space could be provided below the site for the residential properties and a further 10 no. spaces at ground level for disabled parking.

7. Jersey Gas Site

This large site is suitable for a significant new development for residential or other purposes, should it become surplus to the Gas Company's requirements. The International Energy Group (the parent company of Jersey Gas) has indicated a willingness to work with the States to achieve the States and its own commercial objectives.

The Revised Masterplan proposes 24,000 sq.m. of housing development, enclosing public open space totaling 0.45 vergees (810 sq.m.), and 185 underground car parking spaces for residents.

Any new buildings should be predominantly 5 1/2 storeys including a lower ground floor and could provide a pedestrian route to St Saviour's Road from the Town Park.

The site will be required to deliver 125 car parking spaces for general public use, which will be subject to a management agreement with Transport and Technical Services.

The site must be fully remediated as part of the redevelopment.

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Aerial view of proposed intervention sites Key

1. Partial pedestrianisation of Bath Street / David Place Landmark buildings
2. Bath Street to Halkett Place link
3. Gas Place and Talman sites Key intervention sites
4. Ann Court
5. Belmont Gardens
6. Minden Place Car Park
7. Jersey Gas Site

Current view up David Place  A route better suited for pedestrians, cyclists and buildings...

Current view of congested David Place  Proposed view of improved David Place

Photo of the Old Fire Station View of the Old Fire Station Square looking eastwards (with possible future development shown)

Hopkins Architects  North St. Helier Masterplan, Jersey

3 Gas Place, Talman and Jersey Gas sites

Jersey Gas Site

Town Park

Tunnell Street

Gas Place

Belmont Road

The

Odeon

Robin Place

Nelson Street

Ann Court

Aerial view of the proposed Town Park

Hopkins Architects  North St. Helier Masterplan, Jersey

A view of the Town Park looking to the east

Hopkins Architects  North St. Helier Masterplan, Jersey

A view of one of the squares within the new development proposed for the Jersey Gas site

Hopkins Architects  North St. Helier Masterplan, Jersey

4 Ann Court

This site is suitable for residential development of 5½ storeys, a new public square of approximately 1/3 vergee (1,700 sq.m.) and underground parking for 285 short stay, shopper and overnight local residents parking out of a total of 400 underground spaces.

The original proposals for Ann Court involved the siting of a multi-storey car park on the site with limited residential development circling it. The local residents association (TRRA) mounted a vociferous objection to the scheme in terms of the physical scale of the proposed car park, the potential oversupply of parking in the area, its location in a residential area and resulting road safety, pollution and noise issues. Deputy Martin led a successful campaign which overturned the multi-storey car park proposal in favour of the proposal outlined in this plan

The Masterplan proposes a short term shoppers' car park below the Ann Court site to replace Minden Place car park.

Looking east down Phillips Street, Ann Court is a highly visible site located on an axis at the end of busy Minden Place with its shopping and market access. In the distance, Victoria College and the wooded escarpments surrounding St Helier make an attractive long vista marred only by De Quetteville Court high rise block which would be better removed. The site is an ideal location for an urban public square, both visible and accessible from the town centre shopping area, but also firmly located within the residential area. The Jersey Arts Centre would benefit from the adjacency to the new public square. People working in, and visiting the town centre, will be able to use the square at lunchtimes while it becomes more of a local, residential square outside the working day and at weekends.

Current view down Phillips Street towards Ann Court and Victoria College

View down Phillips Street to the new Ann Court development (De Quetteville Court removed)

Hopkins Architects  North St. Helier Masterplan, Jersey

Underground car park

The public realm improvements and reduction in traffic congestion to Bath Street, David Place and Minden Place rely upon the relocation of the Minden Place short term car park to Ann Court. This is discussed in greater detail when describing the changes to Minden Place.

The short term parking currently located in the Minden Place car park will be replaced within the proposed underground car park below Ann Court. Ann Court is

less than 300m from the Central Market entrance and hence is considered close enough to the shopping district to provide a suitable location for short term shoppers parking. Entry to the car park will be from the public square above with good lighting and natural surveillance of the public square by surrounding residential properties, and the Arts Centre and this will mean public safety is ensured.

285 out of the 400 spaces in this car park are proposed for short term parking with the remaining 115 spaces allocated to the residents living in the development above.

Initial thoughts on quantum of residential parking suggest that each town house will be allocated a single bay

and each 2 and 3 bedroom apartment will be allocated the equivalent of 0.5 of a bay. It is expected that many residents will not own a car living as they will do in the centre of St Helier. Car clubs will be encouraged and parking spaces dedicated.

The public spaces in the Ann Court car park, will be available for overnight and weekend parking for local residents.

The proposals assume the purchase and demolition of the existing public house and demolition of all existing housing upon the site, and the redevelopment of the site for up to 5½ storeys.

Town Park

Belmont Road

Ann Court

Phillips Street

Aerial view of Ann Court showing the new public square

Hopkins Architects  North St. Helier Masterplan, Jersey

De Quetteville Court shown dotted

Aerial view looking east towards the new public square for Ann Court

View of Belmont Road and Belmont Gardens  Belmont Gardens as a Pocket Park' between Ann Court and the new Town Park

Hopkins Architects  North St. Helier Masterplan, Jersey

6 Minden Place

The existing car park may have a further 10 years of life before it requires replacement and it currently provides compact, centrally located shoppers parking.

Initially these factors favoured retaining the car park, but the following considerations finally resulted in the Revised Masterplan proposal to redevelop the site:

Traffic

Minden Place car park is located in the centre of town, which would mean continued traffic congestion associated with the need to draw traffic right into the very centre of town through congested streets. Relocating the car park to Ann Court allows it to be approached via the ring road to the east avoiding dragging cars through the very centre of town.

The proposed traffic measures then become possible:

• Reduction of Minden Place to a single lane with greatly enlarged pavements and a pedestrian friendly crossing at the Bath Street junction;

• The reduction of Bath Street and David Place to a single lane heading north, allowing the enlargement of pavements and the substantial reduction of traffic volumes. This becomes feasible when the shoppers' car park access is no longer from Bath Street.

Proposed pavement widening and traffic measures for Minden Place

The existing Minden Place car park

Hopkins Architects  North St. Helier Masterplan, Jersey

Improved public realm

The implementation of the traffic measures described above will allow the redesign of the public realm, following the principles of shared space. Cars will no longer

have priority and both the pavement and road surfaces encourage pedestrians to have priority. It has been shown that vehicle users in this situation behave with caution, driving more carefully and slowly.

New development

The masterplan proposes the redevelopment of the unattractive car park and its replacement with a new commercial/residential development with retail on the ground floor opening onto small square facing onto Minden Place. A small underground car park serving the new development is proposed.

Historically the site was once the old Cattle Market and as such, was an important and vibrant hub for the town. Its redevelopment will provide an opportunity to once again reinvigorate this central site.

The old Cattle Market located in Minden Place

Proposed development at Minden Place

Hopkins Architects  North St. Helier Masterplan, Jersey

The Masterplan Summary

1. Bath Street / David Place

• Partial pedestrianisation of Bath Street / David Place

• Pavements widened, trees introduced, traffic and pedestrians occupying shared space

2. Bath Street to Halkett Place link

• Improving east west connectivity at the north end of Halkett Place and creating a new public square

3. Gas Place / Talman site

• Remediate the land

• New Town Park 12,710 sq.m.

4. Ann Court

• New underground car park

• New public square

• New residential accommodation for families

15,000 sq.m. private residential

115 residential parking spaces (underground) 285 shoppers parking spaces (underground) 2,480 sq.m. public realm

5. Belmont Gardens

• Market trader vans relocated to a new car park

• New community park

6. Minden Place

• Multi-storey car park demolished

• New building with active use on the ground floor

• New public square adjacent to Minden Place

900 sq.m. retail at ground floor

2,250 sq.m. housing

25 residential parking spaces (underground) 10 disabled parking spaces (at street level)

7  Jersey Gas Site

• New housing development

• New underground car park

810 sq.m. public space

24,000 sq.m. of housing development 180 residential parking spaces

125 public parking spaces

* Note: All areas given are gross

Stopford Road

Victoria Street

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Nelson Street 2

5 Belmont Road

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6

Minden Place Phillip Street 4

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Key

Landmark buildings Key intervention sites

Hopkins Architects  North St. Helier Masterplan, Jersey

Springfield Stadium

St Marks

7

Victoria College

3

5

The Belmont Road Methodist Odeon

Church

2

Arts

Centre 4

Phillips Street

1

6

Wesley Chapel

Minden Place

Fish  Peter Street Market

Aerial view of North St Helier with masterplan proposals illustrated.  Key

1. Partial pedestrianisation of Bath Street / David Place
2. Bath Street to Halkett Place link
3. Gas Place and Talman sites
4. Ann Court
5. Belmont Gardens
6. Minden Place
7. Jersey Gas Site

Hopkins Architects  North St. Helier Masterplan, Jersey

Other development sites

A proportion (initially 12½%) of any residential development will be required to be developed as affordable housing. Non residential developments will be required to contribute, by way of a development contribution to be agreed by the Planning and Environment Minister, towards the cost of infrastructure and public realm improvements.

There are numerous sites ripe for redevelopment in North St Helier totalling circa 22,000 sq.m. in area, see section 2.3.17; Landownership and area schedule of the original Masterplan Consultation Document. The masterplan makes specific recommendations for the following sites:

7  Former Le Masurier Warehouse

As a going concern, this site could retain its existing warehouse use.

However if this site was to be redeveloped, it would offer an alternative site for a long stay and local residents car park or an opportunity for residential development.

Any development should include a pedestrian route linking the Salisbury Crescent site with the historic buildings on the Wine Warehouse site, through to the new Town Park .

Any future development to be contained within existing building heights, to prevent overshadowing the houses in Stopford Road.

8  Wine Warehouse

Redevelop existing historic structures for small scale retail, together with food and drink use. Any new development should be sympathetic to the scale and materials of the existing historic structures, and include provision for the proposed pedestrian route from Salisbury Crescent to the proposed town park.

10  Britannia Place site

This site should be developed as a new 3 storey residential scheme with the main facades presented towards the new park.

Consideration should be given to establishing design codes to guide future development for this project and

other development around the proposed Town Park. Any proposed development of the sites to the

south of Robin Place should retain the existing historic buildings. In redeveloping this site, service access should be provided from Tunnell Street, and consideration be given to closing Robin Place and incorporating it within the public realm of the town park. The ground floor of the Bath Street end of this site would be suitable for ancillary (non vehicle trip generating) retail or food and drink use.

11 & 12  Le Masurier Bath Street & Odeon Cinema site

The development of these sites presents a significant opportunity to regenerate this part of the town. These sites should be developed with a mixture of retail, office and residential development. On-site car parking provision should be limited to that necessary to serve the development itself

Residential use in this location will help reduce the impact of cross-town traffic, which is a key component of the traffic strategy.

Le Masurier Ltd. recently presented its proposals for the site, which include the demolition and redevelopment of the Odeon, to States Members.

Consideration is being given to the current listing

of the Odeon on Bath Street and whether it should be retained on the list. Notwithstanding that reassessment, the proposals in their entirety can only be properly evaluated through the planning application process, supported by retail and traffic impact assessments. An application is anticipated once the company has completed the revised impact assessments and its own public on-line consultation.

The grain of new development should be sympathetic to the existing urban grain as detailed in the St Helier Urban Character Appraisal.

The development should provide improvements to the public realm in the form of public open space and pedestrian permeability and should be developed as part of an overall plan in conjunction with the Nelson Street car park site.

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Key

Landmark buildings Key intervention sites Development sites