Draft Bradford District Local Plan - Preferred Options (Regulation 18) February 2021

Shipley

Introduction

5.7.1 Shipley is located approximately 5km to the North of Bradford city centre on the A650, the main transport route connecting Keighley to Bradford. The area forms part of the northern fringes of the Bradford urban area. Shipley is a mixed area with large residential suburbs, employment and retail areas with an important town centre. It has superb rail connectivity offering short journey times from Shipley Station to Bradford City Centre and Leeds and onward rail connections to London.

5.7.2 The town centre is the focal point for the provision of shopping, leisure and public services, which caters for local needs. Within close proximity to the town centre is the World Heritage Site of Saltaire and significant employment areas, including am industrial and office cluster around Dockfield Road. Salt's Mill, the focal point of Saltaire, is a fantastic example of the area's architectural heritage and there are clusters of attractive historic buildings around the fringes of the town centre and the Leeds and Liverpool Canal.

5.7.3 Shipley is part of the Regional City of Bradford with retail and leisure functions located within and around the town centre. The area has excellent rail and bus connections with Bradford and Leeds. Shipley has its own Parliamentary Constituency and falls within the Shipley, Baildon Ward and Windhill and Wrose wards.

5.7.4 The settlement area has a population of 18,626 residents with 64.5 % falling within the working age category (16-64), similar to the West Yorkshire (62.8%) and England (62.4%) averages. The ethnic composition of Shipley is primarily made up of people who identify themselves as White British (82.5%). This is a higher proportion than the West Yorkshire average (78.4%).

Figure 1: Location Plan

Planning for Prosperity

5.7.5 The Local Plan settlement hierarchy identifies Shipley as within the Regional City of Bradford, which is the prime focus for housing, employment, shopping, leisure, education, health and cultural activities and facilities in the District. There is a key focus on transforming its economic, environmental, physical and social conditions to support its long term regeneration. Shipley is also identified by the Local Enterprise Partnership as a Spatial Priory Area (SPA) Investment Location for Regeneration. Linked to this, is Shipley's identification for a Town Investment Plan to transform Shipley's economic growth prospects with support from the government's Towns Fund. The fund will provide up to £25m for Shipley to invest in capital projects designed to improve connectivity, land use, economic and cultural assets, skills and enterprise infrastructure in the town.

5.7.6 The area provides the opportunity to deliver significant housing and economic growth supported by environmental and sustainable transport improvements and to secure direct investment and funding to support the delivery of innovative and sustainable development, skills, culture, climate change mitigation and green infrastructure enhancements.

5.7.7 Shipley is a mixed area, with areas of relative affluence located to the south and west and areas of higher deprivation to the north and east. 34.3% of individuals living in Shipley are amongst the 20% most deprived neighbourhoods in England. Shipley ward is the 4th most deprived area in Bradford on a scale of 1 being most deprived and 10 being least deprived.

Figure 2: Index of Multiple Deprivation – Shipley

Economy and Employment

5.7.8 Shipley has historically been, and remains, an area of industry and employment and includes areas that are home to a diverse range of established businesses and employers. The area currently provides significant employment opportunities and is popular with many business sectors. There are a range of local employment opportunities within the area. There is one designated employment area within Shipley. The area is also highly accessible to Bradford and Leeds city centres for access a wider range of employment opportunities.

5.7.9 The economic activity rate at 73.3% is above the West Yorkshire average (68.5%) as are the number of full-time employees. The average income is £40,170 per household, which is higher than the West Yorkshire average of £38,499. There are employment opportunities within the town with the three largest employment sectors focussed around health and social work, education and retail. The three largest industry groups for workforce jobs based in Shipley are health, retail and professional, scientific & technical services.

5.7.10 The main employment area is located around Dockfield Road and North of the railway line. There is also a large Business Development Zone (BDZ) identified in Shipley from Saltaire to Dockfield Road. One specific large employment land allocation is proposed for this area (SH23/E), located South of Carnaud Metalbox Engineering Site. In addition, under Policy SP6 economic growth and investment will continue to be supported particularly with a focus upon the priority sectors of retail, manufacturing and professional services.

Retail

5.7.11 Shipley Town Centre has an important town centre (Figure 3) and has been subject to a review as part of the Retail and Leisure Study (2019). The Primary Shopping Area is concentrated on the Market Square, Kirkgate, Westgate, Manor Lane and Wellcroft and includes the Asda store. This area contains a high proportion of retail units, supported by a range of uses such as cafes, bars and financial and professional services. Outside of this area, there are a number of retail, service and leisure units within the town centre. An outdoor market is located in Market Square on Mondays, Fridays and Saturdays. Shipley also contains a covered market, the Underground Hall, located in between Kirkgate and Westgate.

5.7.12 The Retail and Leisure Study (2019) identified that Shipley maintains a relatively strong position in the District and has a relatively good health, however there are a number of issues which need addressing, including:

• The public realm, requires investment and updating;
• There is a higher than average amount of vacant properties in the centre;
• The Underground Market is not well integrated with the centre, is difficult to locate and is in need of refurbishment;
• The area to the north of the canal and to the east of Otley Road, whilst falling within the defined town centre boundary, are disconnected from the main area as these features act as significant physical barriers;
• Buildings in key areas, or prominent buildings, are in need of maintenance.

In summary, Shipley is considered to be a functional and healthy town centre, and in particular it is recommended that and investment programmes are implemented to improve and update the centre's public realm and buildings. Figure 3 shows the town centre boundary.

Figure 3- Shipley Town Centre

Transport and Access

5.7.13 Lying at the northern end of the Regional City of Bradford, Shipley benefits from a range of excellent transport opportunities within the wider area, which provide excellent links around and beyond the Bradford District. The Airedale Corridor which links Bradford to Shipley and Keighley is a key transport corridor and transport priority for the District. The A650 Bingley Road and the A6037 Valley Road/Canal Road are two major routes into and out of the cityto the north and connect with the M606 and M62 motorways to the south. To the South, Canal Road is a strategic route within the wider Leeds City Region, linking areas within the Bradford District and beyond. The close proximity of the area to these key highway routes provide a range of travel opportunities for the local communities to travel to surrounding areas within the District and major centres outside the District.

5.7.14 Shipley town centre benefits from excellent public transport facilities. Located on the Airedale line Shipley Station is a key transport hub and part of the West Yorkshire Combined Authority (WYCA) Rail Park and Ride programme. The station provides frequent trains to Bradford, Ilkley and Keighley with connectivity further afield to Leeds and beyond.

5.7.15 The area is served by several high-frequency (every 15 to 20 minutes) bus routes with services operated by First Bradford linking to Bradford City Centre, Bingley, Baildon and beyond into Halifax and Huddersfield. 33.8% of all households have no car, compared with 29.4% across West Yorkshire. The value of public transport and good walkable local services is therefore important.

5.7.16 There are a number of Public Rights of Way that run through the area, including the long distance Dales Way link, which connects the area to the wider open countryside to the north and the Leeds and Liverpool Canal. The area also has excellent cycle links. National Cycle Route 66 connects Bradford city centre to Shipley along the Canal Road Corridor, parts of which have been updated through the Canal Road Greenway. The Airedale Greenway passes through the centre of the area, linked by the Leeds and Liverpool Canal towpath.

5.7.17 Strategic transport infrastructure projects to be delivered within the plan period and protected routes are set out on the Policies Map with the local plan. Key initiatives within the Shipley are detailed in Table 1 below.

Table 1: Shipley Transport Projects

5.7.18 In relation to digital connectivity, average broadband download speeds in Shipley is 50.09 megabytes per second – above the West Yorkshire average (44.57).

Planning for Homes

5.7.19 There are 6,703 dwellings within the settlement area. Three fifths are owner occupied (59.2%), which is lower than the West Yorkshire average (63.4%). 15.4% are socially rented and 22.4% of properties are private rented, which is higher than regional and national average.

5.7.20 The area has a varied mix of house types ranging from older terraced properties accounting for 32.3% and purpose built flats (24.4%), with fewer detached (7.3%) and semi-detached houses (29.6%) than the regional average. Figure 4 below provides further information.

Figure 4: Shipley – Dwelling Type Breakdown

5.7.21 Average house prices in the area are £151,676, which is lower than the than the West Yorkshire average of just over £183,000. The total affordability ratio between house prices and annual earnings which is usually used as a proxy for number of years' worth of earnings required for a house deposit is 3.36 compared to a West Yorkshire average of 2.96.

5.7.22 Delivering new housing, is a key part of the overall development strategy for Shipley. The Local Plan seeks to support the creation of sustainable communities in Shipley through the regeneration of existing urban areas, particularly supporting the economic, environmental, physical and social regeneration of key areas including: The Town Centre, Dockfield Road, land East of the Station at Crag Road, the re-cycling of brownfield land and the expansion of the urban area in sustainable locations to the West. It will ensure that the housing needs and aspirations of local people can be met, together with those of future residents, including market and affordable housing. In addition, it will support the economic and regeneration aspirations for the wider area, as well as reflecting its role as a sustainably connected part of the Regional City of Bradford and a regeneration and investment location.

5.7.23 Policy SP8 in the local plan sets out a minimum requirement of 1,200 dwellings to be delivered during the plan period. These will be delivered through a mix of committed sites (those under construction or have planning permission but have not yet commenced) and site allocations. Table 2 below, sets out the housing position for Shipley, which also includes the application of non-implementation or discount rates for planning permissions and allocations. The Council will be supportive of additional proposals for new homes on additional small sites, particularly those that provide a redevelopment opportunity to bring forward land which has been previously used. Support will also be provided to developers who wish to redevelop larger sites and/or buildings for new homes not currently identified, subject to all relevant policies in the Local Plan.

Table 2: Shipley - Summary of Housing Requirement and Supply

5.7.24 Once the commitments are discounted and removed from the supply this leaves a residual allocation requirement of 1,171 units. The evaluated total site supply of housing units from preferred allocation sites equates to, 1,322 units which is in turn discounted by 10% for non-implementation or reduced delivery, leaving a final allocation contribution of 1,189 units across all sites, which is slightly above the remaining allocation requirement (1,171 units) but is reflective of site yield of the identified sites.

5.7.25 The area is constrained by Green Belt with brownfield and greenfield growth options available and identified. Shipley's allocation mix of 21 sites includes 13 sites which are brownfield and 1 which is mixed (brownfield and greenfield). The remainder are greenfield sites; 4 are within the urban area, whilst 3 fall within the current Green Belt. The Local Plan preferred site allocations for residential allocations to meet the Shipley housing requirement are set out in Table A and identified on the Policies Map and the Site Pro Formas below together with the local strategies map for each plan area. Development of site allocations should be in accordance with specified development guidelines and approximate site provision figures and all other relevant policies of this Local Plan. In delivering the target for new homes in Shipley it has been necessary to make some changes to the adopted Green Belt. Policy SP5 sets out the Council's approach and justification for green belt releases to accommodate new development and lists the sites proposed for allocation which current lie within or partly within the Green Belt.

Planning for Places and Communities

Green Belt, Natural Landscape and Historic Character

5.7.26 Shipley is characterised by an urban landscape along an industrial corridor divided by established parks and less formal urban greenspaces out to a rural landscape, which frames the area on the Western and Northern boundaries. This rural land lies within the Bradford Green Belt and the Airedale Landscape Character Area. The landscape as a whole has been assessed as being moderately, sensitive in character. The prevailing landscape in this area is characterised by a mixture of woodlands, upland pasture, gritstone moorland, industrial corridor and floodplain pasture. The Leeds and Liverpool Canal is an important feature within the Shipley corridor.

5.7.27 Shipley is focussed around major transport corridors, which has a busy feel. Shipley's heritage reflects that of a former industrial and employment area, set against a rural backdrop. The area includes and is adjacent to a number of important heritage assets, including a number of Conservation Areas, historic parks and listed buildings and contains waterways, buildings, and structures that contribute to the area's local character and historic interest. Of international, national and local importance to the District is Sir Titus Salt's model village of Saltaire, which is one of only two UNESCO World Heritage Sites in Yorkshire.

5.7.28 There are three Conservation Areas within the area – Saltaire, Baildon Green and the Leeds and Liverpool Canal. There are a total of 853 Grade II and 6 Grade II* Listed Buildings within the area. The area includes the Saltaire World Heritage Site and its Buffer Zone.

5.7.29 The former Bradford Canal previously ran for 3 miles through the area from the Leeds and Liverpool Canal at Shipley to the centre of Bradford. The Bradford Canal closed to navigation in 1922.The re-introduction of the Bradford Canal has been a long term ambition for the Council. The reopening of the Bradford canal is not considered economically feasible over the short to medium term. However, the plan includes provision to safeguard an alignment for proposed re-introduction of the Bradford Canal to enable its future provision.

Green Infrastructure, Ecology, Open Space and Flood Risk

5.7.30 Shipley is part of a key Green Infrastructure (GI) Corridor for the District and wider region and has a range of areas and spaces that contribute towards its Green and Blue Infrastructure. The River Aire and Leeds and Liverpool Canal form an important blue/green corridor and habitat network running through the heart of the area West to East. Other key Green and blue corridors, include through Shipley Glen to Baildon Moor to the North, along the Bradford Beck, South around Northcliffe Park and West towards Cottingley and Bingley. The main GI corridors are detailed below in Figure 5.

Figure 5: Green Infrastructure Corridors

5.7.31 The area lies within 7000m of the South Pennine Moors Special Protection Area (SPA) and has a range of local wildlife sites and ecologically important habitatsnetworks. The Leeds- Liverpool Canal is a Site of Ecological or Geological Importance (SEGI). The River Aire is an important corridor with potential to link habitats. It is the focus of the Leeds City Regions 'Fresh Aire' initiative and the Wildlife Trust's Aire Valley Living Landscape projects, both projects highlighting the river corridor in the context of wildlife and Green Infrastructure. Additional ecological assets include the natural assets of Walker/Midgley Woods, Hirst Wood, Nab Wood, and Old Spring Wood ancient woodlands. The Bradford Beck is also a key local waterway with aspirations for its ecological improvement and re-naturalisation.

5.7.32 In regards to formal open space, thereare 80 sitesidentified as open space covering an area of 99.21ha. The key sites within the area are:

• Roberts Park
• Northcliffe Park
• Nab Wood Cemetery
• Saltaire Sports Ground
• Northcliffe Golf Course
• Leeds and Liverpool Canal
• River Aire

5.7.33 There is a good level of provision of certain types of open space in Shipley (Allotments, Cemeteries, Green and Blue Corridors, Natural and Semi-natural Greenspace and Provision for Children) but some deficits of other typologies. Of particular note is in Outdoor Sports and of Parks and Gardens despite the well-used Roberts Park and Northcliffe Park. Future opportunities for Outdoor Sports and Parks and Gardens should therefore be the priority for additional provision where the opportunities arise. Figure 6 shows the location of existing areas if open space.

Figure 6: Shipley - Open Space Overview

5.7.34 Shipley's location means that parts of area along the valley floor are at high risk of river flooding from the River Aire the Bradford Beck. In particular areas adjacent the River Aire around Roberts Park, Dockfield Road and West of Otley Road is identified as being in Flood Zone 3 and 3b

Community Infrastructure – Education, Health and Utilities

5.7.35 Shipley has a local civic role and has a wide range of community facilities to meet the day to day needs of its local residents. These facilities include a Town Hall, schools, GP surgeries, post offices, places of worship, community halls/centres, playgrounds, a library, swimming pool and various sporting facilities. The area is served by 7 primary schools and a number of secondary school with Dixons Cottingley Academy and Titus Salt School being the nearest Secondary schools to the area. Pupils attainment levels at Key Stage 4 (GCSE) is above the West Yorkshire and national (England) average scores – 391.9 compare to 353.5 and 366.3 respectively. Shipley has a number of NHS registered healthcare facilities within the area. Secondary (acute) healthcare is provided at Bradford Royal Infirmary. Figure 7 shows the location of local schools and medical facilities.

5.7.36 Average life expectancy at birth for Shipley residents is similar to the West Yorkshire and England average, with healthy life expectancy of 61 for men and 63 women.

Figure 7: Schools & Medical Facilities in Shipley

5.7.37 There is one existing waste management facility within in the area, the Crossley Evans site located to the south of Shipley town centre. The Crossley Evans site is one of the three major metal recovery sites (MRS) located within the District. This site is also an important part of the District's waste management infrastructure, as a large established waste site within a central urban area with good connectivity to the primary road and rail network.

5.7.38 When planning for the long-term development of Shipley, it is vital that new development is supported by the appropriate infrastructure. The capacity, quality and accessibility of services and facilities are all key components in ensuring people can enjoy living, working and visiting the area. The Council will continue work with key infrastructure providers and others including the Local Education Authority, Clinical Commissioning Group and utilities providers to determine the impacts of future growth and development on local infrastructure capacity and provision. Further infrastructure details will be published through the Local Infrastructure Plan and as part of the

Local Area Strategy and Plan- Shipley The Local area strategy for Shipley includes: Reinforcing the importance of Shipley town centre as a location for investment and regeneration and a key location for housing and economic growth and regeneration in the District. The delivery of 1,200 new homes supported by new business, retail, leisure and community facilities. This includes maximising the delivery of brownfield sites, including a large residential led mixed use development at the former HMRC Shipley tax office site and some greenfield/greenbelt sites, in particular to the West of the settlement. Strengthening the role of Shipley as an attractive place to live, work and visit with a vibrant town centre, new high quality mixed use developments and excellent public transport links, and will provide an attractive gateway to Airedale and the World Heritage Site of Saltaire. Town centre enhancements including refurbishment/repurposing of key buildings across the town centre, public realm improvements and new community uses alongside new homes and business and retail uses with Market Square remaining as the focus for the town centre Promoting the town as an important transport hub. This will include new and improved pedestrian and cycle routes to provide better linkages between the town centre, Shipley Station, Saltaire and the Leeds and Liverpool Canal, which will help to recapture footfall and improve the quality and attractiveness of the town centre. The Dockfield Road area becoming a vibrant and attractive residential and business location, with high quality mixed use development around the waterside setting of the Leeds and Liverpool Canal and the River Aire. This area will include a mix of family housing and apartments with supporting uses, which are well linked to Shipley Station and the town centre Enhancing the Shipley Employment Zone and Business Development Zone as an important local employment area. Protecting an alignment for the Shipley Eastern Relief Road. Development proposals which impact the route of the Shipley Eastern Relief Road will be expected to protect an alignment, which enables the future implementation of the scheme Protecting an alignment for proposed re-introduction of the Bradford Canal to enable its future provision. Ensuring all development proposals protect and enhance key green infrastructure and ecological networks directly related to the site. Major developments will be expected to demonstrate that they will positively contribute to enhancing identified site specific green infrastructure and ecological networks, and include green infrastructure as an integral part of the design. Development will be expected to conserve and enhance the character, appearance and setting of the areas important heritage assets and historic built form. This will include: the World Heritage Site of Saltaire, Leeds and Liverpool Canal Conservation Area, Listed Buildings and key unlisted buildings and structures within Conservation Areas and the World Heritage Site Buffer Zone. Supporting the objectives of the Saltaire World Heritage Site Management Plan though the protection of the outstanding universal value of Saltaire World Heritage Site and its setting, and by ensuring new development and public realm works enhance the built environment around Shipley town centre and improve links between Saltaire and Shipley town centre.