Download Bolton Mills Action Framework

Bolton Mills
Action Framework
Guidance for the future role of
Bolton’s Mills
www.bolton.gov.uk
Contents
1.0
Introduction
1.1
1.2
1.3
1.4
1.5
2.0
Role of the Action Framework
2.1
2.2
2.3
3.0
Setting Objectives
Lessons Learned
The Objectives of the Framework
The Action Framework
3.1
3.2
3.3
3.4
4.0
The Purpose of the Study
Parameters of the Study
Bolton’s Mill Resource
Case Studies
Developing an Action Framework
Introduction
Key Issues of the Framework
Monitoring and Review
Action Framework Table
Appendices
A:
B:
Mills Assessment Matrix
Evaluation of Funding Sources, September 2006
Lorne St Mill No.3
© Bolton Council. Published January 2007 . No part of this document may be reproduced in part or wholly, by any
means, without the prior permission of the publishers in writing. Contact The Communications and Marketing Agency,
2nd Floor, The Wellsprings, Bolton BL1 1US for further information.
Front cover photography: Swan Lane Mill No. 3 and Eagley Mills. Photographs courtesy of Sean Wilton,
Charlie Baker, Urbed and Bolton Council
Foreword
With over one hundred mills or complexes still standing
providing 1.5million square metres of floorspace, Bolton
has an impressive mills heritage even by the standards
of North West England. These buildings are of immense
value to businesses and local communities. Some are
notable structures of architectural merit, others sit in
conservation areas or simply at the heart of key gateways
or views in neighbourhoods, and even the smallest mill
buildings impact on the economy and environment of
their surrounding communities.
Bolton Council has recognised the importance of the
mills resource for many years and has had a strategy and
action plan to guide and facilitate development and
investment since the late 1980’s which has focussed on
maintaining the mills as a key provider of accessible
business and employment accommodation. However
recent years have brought new challenges; of ageing
assets, declining demand from traditional large floorplate
users, development competition for higher value land
uses and reduced public sector financial support
availability. A fresh approach was needed, and the
Council with our Strategic Economic Partnership has
risen to the challenge, and produced this document
based on an intensive period of survey, research,
consultation and best practice.
Councillor Ebrahim Adia
Executive Member for Development
The Bolton Mills Action Framework identifies 7 key
objectives and a series of tasks to deliver progress.
Each year, the Council will prioritise action which will be
expressed in a clear delivery plan as our commitment to
bring about change in this important policy area. I urge all
with a stake in the future of our mills heritage to actively
support us to achieve the necessary development and
regeneration of our mills assets.
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1.0 Introduction
1.1 Purpose of study
King Sturge LLP, supported by Urbed, was
commissioned by Bolton Council to develop this Mills
Action Framework to guide the future development of mill
premises across Bolton. It is intended that the Action
Framework will help provide a clear picture of the current
situation – based on surveying and case study work
undertaken throughout 2006 by the Council and the
consultancy team – and a structure for the future
development of mills in Bolton.
The Action Framework is a non-statutory document that
has been produced to provide further guidance to all
parties concerned with the future role of mills in Bolton. It
includes recommendations on the future direction of
planning policy, though it is recognised that any changes
made within the statutory planning process take, through
necessity, a considerable period of time before being
adopted. Therefore this Action Framework is principally
an advisory document, aimed at assisting Bolton Council
in the meeting of a number of their objectives including
those related to conservation, employment, retail and
housing issues. Bolton has a mill resource that is
impressive even by the standards of North West England,
and these buildings are potentially of immense value to
business and community activities. Some are notable
structures of architectural merit and thus recognised as
Listed Buildings; others sit in Conservation Areas; or
simply at the heart of key gateways or views in
neighbourhoods; but even the most low-key or small mill
buildings impact on their surrounding communities, and
therefore it is logical to want to understand as much
about these buildings as is possible.
1.2 Parameters of
the Study
An important part of preparing the Action Framework was
to ascertain exactly what constitutes a mill. The formal
definitions of a mill – in the context of a built structure are as provided by the Oxford English Dictionary as
follows:
• A building equipped with machinery for grinding grain
into flour or meal;
• A building or group of buildings equipped with
machinery for processing raw materials into finished or
industrial products;
• A building or collection of buildings that has machinery
for manufacture; a factory.
Clearly this leaves a wide definition that encompasses
virtually all industrial premises and in the context of this
Action Framework we also have to consider buildings
that formerly had these uses but are now vacant or in
another non-industrial use, such as storage space or
residential homes – as these buildings impact on their
local communities too. There has also been debate over
which buildings qualify as a mill in their own right, or
whether they sit within larger mill complexes that should
be viewed as one. Earlier surveys estimated there may
be up to 130 mills across Bolton – however following
detailed survey work an accurate list of 108 mills was
assembled, with mills having been demolished or
changing their names in the intervening times.
Consequently the 108 mills that have been analysed for
this Action Framework may not be, by definition, an
exhaustive list of every building that potentially qualifies
(or qualified) as a mill. They are, however, by both
technical definition and public perception, mill buildings –
so all are worthy of consideration within this study.
1.3 Bolton’s Mills
Resource
Victoria Mill
Bolton has a rich legacy of mill buildings, which
developed as part of Bolton’s growth as an important
industrial centre – predominantly textiles, but by 1850
Bolton’s industrial base also comprised bleaching,
calico printing, coal mining, heavy chemicals, heavy
engineering, leather tanning, papermaking, rope making,
and many other smaller industries. By 1911, the textile
trade alone employed approximately 36,000 people. Mills
came in many shapes, sizes and locations, often with
vast floorplates divided across many levels. Of the mills
still standing in 2006 it was estimated that a total of
1,438,612 square metres of floorspace remains, giving an
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average mill size of 13,320 square metres – figures that
confirm the extraordinary significance of these buildings
to Bolton’s future, as well as its past.
Perhaps most telling in terms of reasons why this study is
required, are figures from the Valuation Office, suggesting
that only 762,047 square metres of mill space is
occupied – representing an occupancy rate of just 53%.
Furthermore, with a third of mills that can claim 100%
occupancy being in residential use, and another quarter
being in storage use, the statistics indicate that mills
remaining in their traditional use – industry – are amongst
the least successful in attaining high occupancy rates.
Given that industrial uses account for the prime use in
around 42% of mills in Bolton, the implication is that mills
being used for industrial purposes are rarely vacant, but
often under-used.
The construction of mills in Bolton boomed between
1850 and 1900, when over half (53%) of the mills
evaluated in this study were constructed, with only 23%
of today’s remaining mills being built after 1900. The
oldest mill in Bolton is the Wallsuches Bleachworks in
Horwich, built around 1770, and currently in the process
of being converted to full residential use. Wallsuches
Bleachworks represents one of the few stone-built mills
in Bolton, as opposed to the more typical brick
construction. Bolton’s ‘youngest’ mill is Sir John Holden’s
Mill, built in 1927, and most recently in use as a
distribution centre. Whilst most of the existing mills are
based in central Bolton (59%), they do feature throughout
Bolton with Farnworth – housing 15% of all Bolton’s mills
– also being a centre of particular interest, and home to
the most significant mill cluster – the ten mills sitting in
close proximity in the Moses Gate neighbourhood. A
smaller number of mills were identified in Westhoughton,
Horwich and Kearsley. Across all the locations in Bolton it
was notable that owners were often locally based – over
55% came from within Bolton. However just under one
third of owners remain unknown.
1.4 Case Studies
Further to the survey of Bolton’s mills, the consultancy
team undertook more detailed analysis of five ‘case
studies’ – mill buildings or mill clusters – between April
and July 2006. This process involved meeting, where
possible, mill owners and occupiers, examining the
buildings, and identifying what physical, financial, and
strategic issues the users faced in their attempts to
maximise the mills’ potential. The findings from these
case studies were supplemented by site and/or desktop
analyses of a range of case studies from beyond Bolton –
two from the United Kingdom, in Stockport and
Calderdale, and two from overseas – the French and
American approach to mill development planning. The
purpose of undertaking these local and external case
studies is to provide Bolton with firsthand evidence of the
opportunities and threats facing owners and occupiers
elsewhere and what has become recognised good
practice – as well as what mistakes were made that
Bolton can avoid.
1.5 Developing the
Action Framework
What became evident from the surveying exercise, and
the examination of particular mills in greater detail, is
that despite their diversity in ownership, size, location,
use, condition and heritage value, there are a number of
issues that relate to virtually all mill users. Issues such as
finance and funding, physical upkeep, access, safety,
available technical support and the meaning and impact
of planning regulations, were at the forefront of many
owners and occupiers concerns, and it is anticipated
that the guidance in this Action Framework will not only
be a tool to assist Bolton Council, but also a source of
information for all parties involved in present and future
mill uses.
Perhaps surprisingly, only 13% of the mills surveyed
have Listed Building status – and, less surprisingly, they
are amongst the buildings considered to be in the best
condition. Condition is a difficult issue to quantify –
without full structural surveys of all 108 buildings,
assessments have to be made purely on visual condition,
which can be inaccurate. In the absence of further detail
however, this represents the best information available,
and it is quite enlightening – around 20% of all mills are
considered to be in ‘poor’ or ‘very poor’ condition, and
whilst it is heartening that 44% are rated ‘good’ or better,
having one-fifth of a valuable resource in such peril is
clearly not an acceptable situation – and again justifies
the need for focusing specifically on Bolton’s mill
resource.
Swan Lane Mill No.3
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2.0 Role of the Action
Framework
2.1 Setting Objectives
Section 1 of this document has outlined how the Action
Framework came into existence and what sources
informed its format and content – it is also important to
outline the justification for producing it. The research
undertaken, and the input of specialists from a broad
range of disciplines, led to the derivation of a series of
lesson learned. Prior to setting the objectives of Bolton’s
Action Framework it is useful to outline what have been
the findings from elsewhere.
2.2 Lessons Learned
The following, outlines what appears to be the key issues
from the nine case studies reviewed in terms of ensuring
– as far as is possible – that mill redevelopment is
successful. Initially the review looks at what can be taken
from the experiences of mill redevelopment outside of
Bolton, and then follows with an analysis of what broad
findings can be taken from the five internal case studies.
2.2.1 Lessons learned from external
case studies:
A progressive owner is crucial
Regeneration schemes, utilising the redevelopment of a
mill or mills complex as the catalyst for transforming an
area, exist across the world, including in the UK. A
striking feature of the most successful schemes have
been the mill owners’ perspectives – the owners were, for
instance, often persuaded to the long term capital value
available through regeneration rather than the more
typical approach of concentrating on maximising short
term revenue potential.
Grant aid is not vital for some uses
Some authorities believe that the lack of grant funding
now available for mill redevelopment was not necessarily
an insurmountable problem. Developers tend to see grant
funding as a mixed blessing as it brings with it a number
of restrictions on use - in reality what developers really
want is a mill site with substantial open space around the
building (primarily for parking). If a mill can be provided
with reasonable additional space, development interest
will often be forthcoming. However, if conversion is
intended for better quality sustainable employment uses
then grant funding is generally necessary.
Recognising that the public sector must play a
catalytic role
In public-private partnerships (which are generally the
mechanism required to deliver a truly significant
regeneration scheme) the visible lead needs to come
from the public sector. It is a ‘visible’ lead because quite
often the pressure has actually come from the private
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sector, perhaps indirectly, through making demand for
workspace that a local authority cannot provide. Case
studies in the UK and overseas noted this problem –
even in periods of relative economic stagnation demand
existed, but could not be catered for due to the lack of
adequate facilities. Eventually competing boroughs,
towns or countries fill this gap if action is not taken. So
usually the private sector’s requirements are the initial
catalyst – it is rare for a local authority to drive a
regeneration scheme on a purely speculative basis –
often at least some evidence exists of potential future
demand. The public sector’s role is to define a location(s)
in their area that will act as the hub for this regeneration,
initiate the land assembly process, the co-ordination of
stakeholders, and the provision of some level of financial
resource to instigate physical change.
The public lead should be subtle however – most
regeneration schemes recommend avoiding a reliance on
the public sector. The public sector should prioritise the
proposals that it wishes to implement, and those that are
better suited for co-operative arrangements or private
sector investments. Public investment in an area should
be conducted in a manner that will attract private
investment and maximise this sector’s impact and
visibility.
Appreciating timescales involved
The economic revitalisation experienced in the case
study communities – both UK and overseas – has not
happened overnight, and it would be unreasonable to
perceive that new changes to an area will happen
instantaneously. Regeneration occurred by keeping
long-term strategies in mind. Continued regeneration in
flagship schemes and clusters takes in advance of ten
years from inception to delivery.
Utilising land use policy to address incompatible
development pressures
The cost of converting mill space to business space
capable of competing with new-build space available on
the market is often quite prohibitive to developers, as
rental incomes from office or industrial space is not as
high as the revenue that can be levered from residential
development – hence the general market pressure to
convert mills to flats and apartments. Mixed-use
developments are also disliked by many developers, as
the difficulties of providing separate access and egress
and balancing uses that exhibit some degree of
incompatibility is costly. In response in the USA, many
city authorities have sought to balance the competing
interests between the conversion of industrial properties
and the preservation of a sizeable segment of an area's
industrial legacy (and perhaps more importantly existing
tenancy) in the area by declaring a mixed-use zoning
resolution. In this mechanism entire buildings can be
converted to, for instance, residential use in a particular
area, as long as a corresponding level of employmentbased redevelopment is catered for within the zoning.
In the UK some authorities are utilising the policy
mechanism of Section 106 Agreements. These
Agreements are used to ensure that loss of employment
space at one particular site is not necessarily a barrier to
development – as conditions are imposed to ensure that
a satisfactory level of employment space replacement is
provided elsewhere in the locality.
Support at the national level is highly beneficial
Federation des moulins de France (FDMF) is one of
the most co-ordinated and effective national mills
organisations in the world. The links provided by FDMF to
relevant British sites only highlight the lack of strategic
co-ordination in this country in comparison to France –
British sites advertised focus on a specific project or area,
such as Crabble Corn Mill in Kent or the Vale Mill Trust in
Tyne and Wear – whereas some other European
countries have a dedicated national organisation focusing
on mills. Whilst the development of such a national body
is clearly beyond the influence of any single local
authority, it is worth noting that such an organisation can
exist, and indeed the 14th National Mills Conference in
Stockport in June 2006 indicates the growing level of
nationwide mills strategising.
2.2.2 Lessons learned from Boltonʼs
mills:
The five case studies identified and explored within
Bolton included a large cluster of mills, a three-mill
cluster, and three individual mills with different present
and proposed future uses. The analyses of these
buildings led to the following overarching findings:
Location, frequency and size of mills are key
factors
• There are, in rare instances, buildings of such scale
that do not necessarily lend themselves to any present
viable use, particularly in areas with relatively stagnant
economies. Even with a co-ordinated masterplan to
stimulate interest there is no guarantee that some mills
will reach maximum occupancy in the foreseeable future;
• However, even without full occupancy some mills can
be economically viable if an innovative partial use can be
found, and consequently investment in their physical
fabric can be assured;
• A central location is beneficial in terms of being
close to major population centres and good transport
infrastructure, however even well-located mills may
require further assistance, e.g. through highways works,
to maximise their potential;
• “Tinkering at the edges” will not achieve the
sustainability of some areas, especially where a cluster
of mills lie in close proximity. There is a need for a
holistic approach to the development of the area if
transformational change is to be achieved.
Unique employment role of mills
• Mills can provide a vital resource to a significant sector
of the population who may otherwise struggle to find a
niche in the employment market, either through lack of
training or skills, mobility, linguistic ability or cultural
differences.
Planning policy issues
• Planning policies on straying from employment uses
can be a constraint – however the need to protect an
area’s employment uses is apparent, as the loss of such
a significant proportion of Bolton’s employment offer
could not be easily replaced elsewhere. If financing
remains unavailable to invest in the area, the structural
decay and infrastructural weaknesses already evident will
further undermine the area’s economic viability for any
form of employment use. Effectively strict adherence to
land use policy could result in some mills and areas
becoming economically obsolete.
Mixed use development has limitations
• Mixed use development can work, but the structure of
the building needs to be favourable or technical issues
will make costs prohibitive. For example, large floorplates
may need to be broken up with a removal of central floor
areas to create internal courtyards, so as to provide
natural light to the inner core of the building if for
residential – or even office – purposes;
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• The gross to net ratios of mixed use conversions
tend to be low reflecting the need for separate cores for
employment and residential uses. This has the effect of
increasing costs and decreasing value, making such
schemes less attractive to developers;
• Owners become concerned that neighbouring mills
receive preferential treatment without justification – i.e.
many want permission to convert to residential but clearly
this is not in the strategic interest of the Borough, so only
some will gain it. At a local level such tensions will
continue to exist without innovative thinking.
2.3 The Objectives of the
Framework
Having surveyed the condition of Bolton’s mills, and
undertaken an analysis of how they are being used, and
what issues either facilitate or constrain their successful
use, we are now in a position to develop objectives for
this Action Framework to address. The objectives, which
are described below, are quite wide-reaching therefore
allowing all parties to see what the rationale behind the
Action Framework is considered to be:
Objective 1: To recognise the value of Boltonʼs mills
This represents the overarching purpose of undertaking
an Action Framework for Bolton’s mill buildings. Their
value is multi-faceted – in some instances, where
buildings have Listed Building status for example – value
of one form has been clearly recognised. However, the
aim of this Framework is to highlight how many forms of
value mills have, or could have with the right support –
not only architectural merit, but their economic usefulness, their contribution to community cohesion and
support, and in their heritage value, both as symbols of
the past and also in terms of place-defining landmarks of
the present and future.
Objective 2: To conserve the best of Boltonʼs
industrial heritage
Bolton has continually lost mills over the past fifty years,
and is unlikely to ever gain any more. Those that remain
will – if protected – become increasingly valuable and
appreciated as examples of an earlier lifestyle and culture,
much in the way that castles and stately homes of even
earlier times are valued today.
Objective 3: To maximise Boltonʼs available
employment space
Bolton has many of the raw materials for economic
success – stable, liberal and closely knit communities;
excellent infrastructure; proximity to major markets; a
progressive Council; existing successful businesses; a
developing business incubation offer; and a rapidly
expanding university. A concern for many new and
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expanding businesses and inward investors is the
availability of quality, modern workspace. Mills often have
large floorplates, good access and a high profile location
– however the gap between the space they usually
provide and what businesses are looking for needs to be
narrowed through investment and upgrading.
Objective 4: To preserve local distinctiveness
Sometimes a mill or cluster of mills is not so much
notable for the quality of the buildings themselves, but for
their importance to defining a broader area. Bolton has
many streets and views that are, often dramatically,
interrupted by the presence of mills. The presence of
these buildings, even when they are under-used or in
poor condition, still gives a neighbourhood an identifiable
landmark, something unique and memorable. Often
generations of locals will have worked in or around the
building, and can provide a reference to the area of huge
psychological significance.
Objective 5: To ensure that mills are an asset to the
communities they sit within rather than a liability
Bolton has a number of neighbourhoods with one or
more mills in their midst. Sometimes these buildings
provide employment, housing, an impressive landmark
and/or other uses. Too many times however, they are
often partially used, poorly maintained and a relatively
poor standard-bearer for the area, becoming a symbol of
economic decline, as well as a potential physical hazard if
under-investment continues. As noted in the paragraph
above, mills can offer so much more to an area and it is
vital that they are not an actual or perceived liability.
Objective 6: To diversify the uses of mills
A range of uses already exists in many mills, but
continual diversification should be encouraged. Mills have
the capacity to house many users, the benefits of this
being: the greater the range the more vitality the local
community witnesses and exudes to outsiders; the
reliance on one or two key users to maintain the building
is reduced; and the community benefits from a greater
number of employment, retail, leisure and living options.
Objective 7: To evaluate the relative importance of
each mill
There is little merit in protecting a building purely on the
basis of age, if it does not contribute in some way to the
betterment of the local and wider community, or indeed
even detracts from it. Resources are too finite and needs
too great to waste time and funding for little benefit.
Therefore, mills need to be prioritised. The mills’
architectural merit, its historic and aesthetic value to the
locality, its economic usefulness, ability to adapt, physical
condition, and its role in serving the needs of the
community all need to be considered. Those mills scoring
most highly across these criteria and most vulnerable to
decline will represent the highest priorities for the Council
and partners to instigate all available methods of support.
3.0 The Action
Framework
3.1 Introduction
The following section outlines the tasks and proposals
that comprise the Action Framework. The tabular
form that Section 3.4 takes is intended to provide a
user-friendly and readily accountable list of projects to
be undertaken over the lifetime of the Framework. There
is no formalised deadline given for the extent of the
Framework’s lifespan, it is to be considered a dynamic
and ever-changing entity responding to the changes in
circumstances that will inevitably affect all of Bolton’s mills
over coming years. What will be necessary is review and
updating of the Framework’s objectives and of the tasks
and targets as each is delivered and new ones become
apparent. Section 3.2 below outlines the issues to be
addressed by the Framework, under which individual
tasks sit. These broad issues were developed through the
detailed survey and case study analyses undertaken
throughout the first half of 2006. Following the analyses
it became apparent that these particular issues were of
importance and by tackling them we can attempt to meet
the Objectives. The issues affect the Council and other
funding and/or statutory bodies, mill-owners, other
stakeholders such as potential investors, and the local
communities in which mills sit.
3.2 Key Issues of the
Framework
The assessment of mills
As noted in Section 2, there is little merit in protecting
a building purely on the basis of age, if it does not
contribute in some way to the betterment of the local
and wider community, or indeed even detracts from it.
Therefore the Action Framework has developed a
user-friendly mills assessment matrix, which takes into
account employment, heritage and regeneration issues,
to be applied for each mill over the coming months and
years. In time a full list of mills, prioritised by a range of
issues needs to be developed to assist in the targeting of
Council resources.
Informing future planning policy
The most notable aspect of the research with regard to
planning policy was that a pressure exists in many areas
to convert mills to non-employment (usually residential)
uses, yet many mills remain designated as employment
sites, primarily due to the Council’s understandable
concern over the loss of scarce employment land across
Bolton. However, at the same time the quality of the
employment space provided by mills was often not of a
standard that met the requirements of potential investors,
creating an unsatisfactory situation in which no party
benefits. The most significant solution is to ensure that if
mills are allowed to be converted to non-employment
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use, a contribution from the developer is secured, and
this contribution is used to maximise the quality of
employment space elsewhere which may have otherwise
struggled to obtain such investment. The intricacies of
developing such a policy are under investigation by
Bolton Council at present and are included in the Action
Framework, with the recognition of the elongated
timescale applicable to statutory planning matters.
Furthermore, it should be noted that a significant number
of mills have no specific use designation at present,
which will limit the scope of a developer contribution
policy.
Planning policy has a key role in the conservation of mills,
and as outlined elsewhere in this Action Framework, a
proportion of mills are Listed Buildings, whilst others sit
within wider Conservation Areas. Yet some of these
buildings face an uncertain future through misuse or
under-investment, and intervention on the basis of
needing to guarantee physical protection may be
required. In cases of unallocated mill premises that score
highly in the mills assessment it may be necessary to
evaluate the potential to provide a protective designation.
Provision of assistance to mill-users
It became apparent from the analysis undertaken that
some owners have little technical knowledge or
experience in handling a mill property. Some owners are
actively seeking external assistance, in the form of
exchange of experiences between owners and mill-users,
and guidance from the Council or other groups with
relevant specialist skills on such issues as funding, mill
maintenance, engaging and negotiating with contractors,
engaging and negotiating with lessees, advertising,
planning and building control, security, and design.
Hartford Tannery
Encouraging use of mills (attracting occupiers)
The Council is often the first source of information for
potential investors, and therefore in a position to
co-ordinate between the mill resource and the users who
may well be suited to this space, so exploring how this
relationship can be enhanced to facilitate efficient
exchanging of information is important.
Promoting the mills resource
Whilst always a difficult concept to quantify, few people
doubt that a positive image can help an area or a
business become more successful, both economically
and culturally – the transformation of redundant industrial
space into sought after residential space in many UK
cities is an example of both occurring simultaneously.
There is no reason why the same logic cannot be applied
to Bolton’s mills and examples made of successful re-use
or innovative methods to improve their appearance,
economic viability, role in the community or structural
soundness.
Exploring funding opportunities
In the present climate, mainstream funding opportunities
are becoming scarce. However, there are still a range of
sources that can assist in the physical and infrastructural
work needed in and around mills, if particular criteria can
be met, and it is important to outline these opportunities.
At the same time, it is also imperative that all parties
recognise the considerable limitations of funding sources,
so as to reduce mill-user’s concerns that they are missing
out on such opportunities.
Focusing on delivery
There are a range of policy tools that the Council can
mobilise to catalyse investment in areas requiring
regeneration, including of course, areas with one or more
mills at their heart. These can take the form of studies
leading to policy updating, such as masterplans, area
development frameworks, and Area Action Plans, and
more wide-reaching financial tools such as engaging in
joint ventures with the private sector, and even utilising
prudential borrowing to raise finance. Administrative
delivery of proposals is also a major issue – and Bolton
Council will need to evaluate their resources to determine
what level of staffing and time can be provided to deliver
the objectives and tasks set out in the Action Framework.
3.3 Monitoring and
Review
This exercise has been invaluable in providing Bolton’s
most comprehensive mill resource review in many years.
It is vital that the evidence base developed at this time is
not seen simply as a snapshot in time, but a dynamic
entity constantly updated as and when new uses and
users are found for each of Bolton’s mills. For the
purposes of simplicity the task of monitoring the progress
of the Action Framework is included within the delivery
section of the table below, as it is considered that
successful long-term delivery will only occur with ongoing
monitoring and review.
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Mills Action Table
Action
Task & Purpose
1 Mills Assessment
Assessment and
Prioritisation
The Council will seek to prioritise all mills in
Bolton through the assessment matrix,
taking into account each mills architectural and
heritage value, its present condition,
its role in the local community and its value to
the economy and potential to drive
regeneration and economic growth. Please refer
to Mills Assessment and Prioritisation System in
Section 4.
2 Planning Policy Recommendations
Planning Policy
Recommendations
Use of
planning-based
regenerative Studies
Use of Compulsory
Purchase Orders
Use of Listed
Building and
Conservation Area
designations
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The Council will seek to develop and adopt
innovative and flexible planning and land-use
policies from which to develop a legally robust
approach to ensure the loss of employment
space is mitigated by contributions from
developers through Development Agreements,
Planning Obligations and the establishment of
an Employment Land Development Fund. This
approach would also help to encourage mixed
use development of vacant mill space, especially
those that are currently under utilised for
employment. Please view specific planning tasks
below.
The Council will consider financing area-focused
studies where it is apparent that the health of a
mill or mill cluster is predominantly based on
external rather than building specific factors. The
form of the study will be determined on a case
by case basis.
The Council will where necessary use its
Compulsory Purchase Order powers for the
purpose of regenerating mills and their wider
localities.
The Council will where necessary use its
powers under the Planning (Listed Buildings
and Conservation Areas) Act 1990 to serve
urgent works and repairs notices as appropriate.
Resourcing
Timescale: All mills to be initially assessed
within 2 years. Pilot assessment completed
within 6 months.
Comment: Process to begin as soon as
mills assessment methodology has gained
widespread stakeholder support. Review should
take the form of a ‘rolling’ update as and when
development occurs in or immediately adjacent
to mills. A Pilot Area contains a small number of
mills should be initially assessed to test the
process. The process should also be applied to
all mills within any area based studies.
Timescale: Ongoing
Comment: Particular opportunities exist in the
short to medium term as Local Development
Framework supersedes Unitary Development
Plan and Bolton’s policies are reviewed. These
issues relate directly to mills, but also the wider
employment land resource in Bolton. The
Council will seek to develop the necessary
planning framework within the next 2 years or
as quick as processes allow.
Timescale: Within 12 months.
Comment: If economically viable, the Council
will aim to initiate one new area based study
within a year of the Action Framework becoming
active.
Timescale: As required.
Comment: Mills assessment and future areasbased studies will assist in identifying priority
sites. CPO powers would only be utilised as a
last resort and where financial resources have
been identified.
Timescale: As required.
Comment: Mills assessment process will
assist in identifying priority buildings to address.
Action
Task & Purpose
Resourcing
3 Assisting mill-users
Technical assistance
to mill-owners
Information pack
Newsletters
Website
The Council will seek to be increasingly
pro-active in supporting mill owners and other
stakeholders involved in the maintenance of
mills.
The Council will provide mill owners – and other
stakeholders as deemed appropriate – with an
outline of the Action Framework and an update
on proposals for the future, including the
availability of further information and assistance.
The opportunity exists to gain feedback on the
desire for, and preferred form and content of,
training workshops, web-based data, and
newsletters.
The Council will produce an annual newsletter
for circulation to stakeholders including mill
owners to promote an exchange of experiences
and updates on key events.
The Council will ensure that a dedicated link
and series of pages on bolton.gov.uk will be
developed containing the key elements of the
Action Framework and information about
upcoming mill-related events and links to and
guidance about potential funding streams.
Contact details for mill-owners and other
stakeholders to utilise will be provided.
4 Attracting Occupiers
Attracting occupiers
Register of vacant
space
The Council will seek to maximise occupancy of
all Bolton’s mills with sustainable users.
The Council will build and maintain a record of
available employment space in Bolton’s mills,
and seek to actively market this space at
suitable opportunities. The Council is often the
first point of call for potential investors and a
comprehensive register of vacant space will be
hugely beneficial.
Timescale: Ongoing.
Comment: A range of communicative
measures to provide a stronger link between
the Council and other parties with an interest in
Bolton’s mills will be instigated.
Timescale: To be undertaken as priority – i.e.
within 6 months of Framework becoming active.
Timescale: Annual newsletter to be
circulated.
Comment: First step is to build an in-house
database of recipients, building on initial
information gained from mills survey.
Timescale: Links to be developed as a
priority - within 6 months – ongoing
development to occur over coming years.
Timescale: Ongoing.
Comment: Bolton Council will take all
reasonable measures to ensure mills are at the
forefront of investment/ relocation/ start-up
decisions.
Timescale: Within 24 months.
Comment: The Council will also discuss with
mill-owners the possibility of marketing available
space through their online resource.
15
Action
Task & Purpose
Resourcing
5 Promotion
Positive use of the
media
The Council will provide press releases to the
regional and local press in order to stimulate
positive media attention.
National Mills
Conference
The Council will evaluate the potential benefits of
providing specific presentation(s) at upcoming
and future Mills Conferences.
Lobbying of key
stakeholders
The Council will raise the profile and wider
understanding of the issues facing Bolton’s
mills by undertaking a co-ordinated campaign of
lobbying local, regional and European politicians
and organisations.
Timescale: Each six month period.
Comment: No significant period of time (6+
months) should be allowed to elapse without
some form of positive media coverage.
Timescale: If required.
Comment: If deemed beneficial by the Mills
Action Framework team the Council will aim to
outline the Framework to a national audience.
Timescale: Ongoing.
Comment: The Council will take positive
attempts to make representation to MPs, MEPs
and Regional Bodies such as the NWDA as mills
are a significant element of regeneration in the
area and one where regional, national and/or
European funding could produce significant
benefits.
6 Funding
Funding
opportunities
Establishment of
an Employment
Land Development
Fund
The Council will provide guidance on when and
where funding may be attainable for mill-owners.
Where applicable, the Council will look to obtain
compensation payment (under Section 106) for
the loss of employment space to other higher
value uses; and to establish a fund which can be
used to provide assistance to employment
projects in mill buildings.
Timescale: Initial information provided within 6
months, and regularly updated.
Comment: Funding will be undoubtedly
limited in coming years; however the Council
will provide details of any potential availability
to mill owners through a range of information
sources, commencing with the delivery of
information packs.
Timescale: To be determined.
Comment: Council will aim to develop
necessary planning framework to facilitate
development of Employment Land Development
Fund within shortest timescales statutory
processes allow.
7 Delivery
Ensuring delivery of
Action Framework
Monitoring and
review
16
The Council will maintain its support for the Mills
Action Framework. The Council will co-ordinate
and undertake the tasks set out in this Action
Framework, subject to resources.
The Council will continually monitor and review
the progress of the Mills Action Framework
Timescale: Ongoing.
Comment: The Action Framework will remain at
the forefront of important policy for the
Council for as long as deemed necessary.
Timescale: Annual review supported by
ongoing monitoring.
Comment: It is recommended that an annual
progress report is written on the Mills Action
Framework.
Appendices
Appendix A
Bolton Mills Assessment Matrix
A1 Introduction
In this section we describe the system devised to assess
and prioritise mills within Bolton. This involved firstly
looking at the issues to be considered then devising a
scoring system. Any assessment and prioritisation
methodology is, of course, subjective. To ensure that
there is stakeholder “buy in” to the methodology it will be
important to discuss the issues, scoring and weighting
systems with these individuals and bodies. These issues
are discussed below.
The first stage in developing the assessment system is to
identify the issues to be included in the methodology. The
view is that there are three main issues when it comes to
assessing the “value” of a mill. These are the contribution
the building makes to heritage, regeneration and to the
economy.
The initial intention was to score each issue from 1 to 5.
This was subsequently changed to '-2' to '+2' so that we
ended up with positive and negative scores with the '0'
score being neutral.
A2 Heritage
The heritage issues are an amalgam of a number of
different issues:
Age: One criterion is the age of the building. If a building
has survived for a few centuries then it is considered to
have heritage value regardless of its architectural merit or
history. Conversely, more recent buildings have to be
exceptional.
History: Buildings have heritage value if they are
associated with historic events or characters. In this
respect the mills of Bolton are undoubtedly significant in
terms of the Industrial Revolution.
First of its kind: Linked to this is the heritage value of
buildings that were the first of their kind - the first fireproof
mill, the first mill using concrete in the world, country or
town etc.
The last of their kind: Alternatively, they may have
become rare because all the others like them have been
demolished.
Rarity: A slightly different issue is heritage value
associated with the rarity of a building – the only church
for example by a particular architect.
Completeness: English Heritage stresses the value
of the completeness of the site where the survival of the
component parts of a mill complex allows the
manufacturing processes to be understood.
18
Social significance: There are mills which are not
particularly historic, old or rare that nevertheless are an
important part of the area's history and its people.
Architectural quality: Heritage is also related to the
architecture of the building; the beauty of its construction
or decoration, or the innovative nature and elegance of its
construction.
Townscape quality: Also important is the contribution of
the building to the public realm of the area.
Heritage value is an amalgam of these issues, all of which
contribute to decisions to list a building or to declare a
Conservation Area. However of the 108 mill buildings in
Bolton, only 17 were listed. Clearly it is not possible to
rely on the listing system nor would it be practical to deal
with each of the above issues. We therefore decided to
distil the nine issues above into four core heritage issues.
Social and historical significance: The building has
played a role in the social and economic history of the
area that is:
+2
+1
0
-1
-2
Unique
Important
Moderate
Of little importance
Insignificant
This issue therefore picks up mills important to Bolton
regardless of their significance and or rarity outside the
area.
Rarity/importance: Because of its age and rarity the
building is of:
+2
+1
0
-1
-2
National/international Importance
Regional/city wide importance
Local importance
Little importance
No importance
This is more familiar territory and combines issues such
as age, history and uniqueness. The scoring is also
more familiar in that it relates to criteria used for listing.
Initially the scoring was more spread out with separate
categories for international, national and regional.
However this meant that we had a small number of mills
in the top category then all of the other buildings scoring
very poorly. Therefore as part of the aim to make '0' a
neutral score we combined these categories into just two
positive categories.
Appendix A
Bolton Mills Assessment Matrix
Listed status: As a result of its construction and
architecture the mill is:
+2
+1
0
-1
-2
Listed
Locally significant
A reasonable building
A bland building
A poor building
It was recognised that this category is not ideal. We
wanted to reflect architectural quality and construction
although to an extent the architectural beauty of mills is in
the eye of the beholder and subject to some dispute. We
are also aware that listing is not just a reflection of
architecture but felt that it should be part of the system.
The next category then includes all buildings that might
be candidates for listing or at least local listing and the '0'
category is for building that will never be listed but which
are nevertheless of good quality and contribute to the
area.
Townscape: Due to its location, size and massing the
building, if refurbished would:
+2
+1
0
-1
-2
Contribute positively to a key frontage or
landmark
Contribute positively to a secondary frontage or
local landmark
Contribute to another frontage
Not be visible from the public realm
Detract from a frontage in the area
A3 Regeneration
We identified seven issues which are listed below:
Catalytic effect: This goes to the heart of regeneration
and is based upon the impact that investing in a
particular mill will have on the prospects for regeneration
in the wider area. The refurbishment of a large, prominent
building will change the image of the area and boost
confidence and values while a smaller development in the
heart of the area might have little impact. It is also
possible to imagine the development of a poor building or
an existing non-conforming use that could reduce
prospects for regeneration.
Adaptability: This takes into account the extent to which
buildings can be converted to modern uses or whether
there are problems with configuration, floor plan depth
and access which made reuse difficult.
Attractiveness to the market: This takes into account
the location and condition of the building but also known
developer interest.
Viability: The combination of attraction to the market,
condition and adaptability will affect the viability of a
building and the likely requirement for grant.
Building condition: It was decided that we should
consider condition because of the depressing effect of
dereliction of the surrounding area and because of the
risk of the building being lost.
As with the heritage issues, it was decided to distil
regeneration from seven to four issues.
Catalytic effect: The mill would:
+2
+1
0
-1
-2
Be a key to the regeneration of an area
Be a key to the regeneration of a local area
Have little wider impact
Inhibit the regeneration of the local area
Inhibit the regeneration of an area
+2
+1
0
-1
-2
In a critical condition or at risk of rapid decline
In a poor condition but stable
Mothballed/ enveloped
In a reasonable condition and stable
Recently refurbished/in a very good condition
+2
+1
Attractive to the market
Attractive to the market with a small amount of
grant
Attractive to the market only with a substantial
grant
Currently unattractive to the market
Unlikely ever to be viable
Condition/risk: The mill is:
Viability: The mill is currently:
0
-1
-2
It is not proposed that financial appraisals should be
carried out of all 108 mills within Bolton. Under this
heading, officers should seek to find out if there is any
market interest in a mill and what this is for, whether they
are seeking financial assistance etc. This will assist in
scoring this criterion.
Physical adaptability: Due to its size, configuration and
structure the building is:
+2
+1
0
-1
-2
Universally adaptable to a range of uses
Presents few problems for reuse
Is problematic due to its scale and configuration
Is very difficult to reuse
Is unusable
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Appendix A
Bolton Mills Assessment Matrix
A4 Economics
Finally of key importance to Bolton Council is the
contribution that mills make to the economy of the area.
Mills were originally the powerhouses of the local
economy. Nowadays there are almost no mills being
used for their original purpose. The buildings however
have shown their adaptability for employment purposes
by providing a wide range of employment space from
cheap (50p a sq ft) storage space, through cheap and
cheerful workspace accommodation to manufacturing
space and to a wide range of type of offices.
There are a number of issues that can be taken into
account:
Amount of employment space provided: Whereas the
amount of floorspace provided can be a useful indicator
of the economic value of a mill it takes no account of
condition, utility or demand.
There is no hard and fast way of scoring this criteria. The
number of jobs could be used but an important
contribution in one area might be 200 jobs but in another
50 might be very significant. We would recommend a
subjective approach to this criterion. Harm may be
caused to a local economy by the blighting effect of a
mill. The second is the potential that the mill has for
contributing to the local economy:
+2
+1
0
-1
Could make an important contribution to the
local economy
Could make a contribution to the local economy
Will make no contribution to the local economy
Will harm the local economy
This criterion would have to measure the potential and
realism of the building to be refurbished for employment
uses.
Quality of employment space provided: Good quality
space is clearly important in terms of the economic value
of a building but again there must be a demand for this
type of space to realise that value.
Current impact on the local economy: This would be
a factor of the number of local jobs that the mill housed.
Many mills provide employment for surrounding deprived
areas as well as providing a “rung in the ladder of accommodation” which enables new firms to take cheap space,
grow and then move to better quality accommodation
once the company is established and profitable.
Potential impact: Some buildings because of their
location, standard of maintenance, proximity to areas
of high unemployment, lack of nearby “starter”/
easy-in-easy-out accommodation may, if investment is
channelled into them make a contribution to the local
economy.
There are probably further criteria but at this stage we
consider the two most important relate to a mill’s current
impact on the local economy and also the potential
impact it may make on the local economy. First is the
contribution that a mill currently makes to the local
economy:
+2
+1
0
-1
Makes an important contribution to the local
economy
Makes a contribution to the local economy
Makes no contribution to the local economy
Harms the local economy
Sir John Holden Mill
20
Appendix A
Bolton Mills Assessment Matrix
A5 Running the methodology
Each mill to be considered is then scored using the
scoring system outlined above. In calibrating this system
it will be first necessary to score a number of buildings.
The results thrown up by this method need to be
examined by a panel of “experts/stakeholders” to discuss
and derive a “standard approach”. It may be necessary
to alter the scorings or weight certain criteria heavier than
others to provide an outcome which meets the views of
the panel. A hypothetical example of the scoring is
provided below:
Social & Heritage Significance
Rarity/Importance
Listed Status
Townscape
Catalytic Effect
Condition/Risk
Viability
Physical Adaptability
Mill 1
1
1
2
1
2
-1
2
1
Mill 3
-2
-2
-1
-1
-2
1
Mill 2
Mill 4
1
1
1
1
2
2
2
2
1
2
2
1
0
-2
-1
0
1
-1
Local Economy
Issues
TOTAL
SCORE
Potential Contribution
Regeneration Issues
Heritage Issues
Current Contribution
MILL
1
2
12
-1
-10
2
-1
2
2
1
13
10
The assessment model needs to be tested by a panel of
stakeholders – so to gain agreement to the criteria to be
used, the scores to be allocated, and possible weighting
that needs to be added to any criteria.
A6 The product
This assessment when fine tuned will provide a “tool”
for the Council to identify on one hand mill buildings that
are important and should be saved/refurbished and on
the other side mill buildings that have no heritage,
regeneration or economic worth and perhaps should be
considered for demolition.
It must be stressed that this is a tool to be used
alongside officer’s own judgement and other relevant
information.
21
Appendix B
Funding opportunities
B1 Introduction
The availability of public sector funding to assist the
refurbishment of mills in Bolton is relatively scarce. The
public sector has many calls upon its limited resources.
We have set out below the usual sources for public
sector funding and have sought to explain their likely
availability or non-availability.
B2 European Funding
The European Regional Development Fund would have
been a logical source of funding to create a business
enterprise accommodation, focusing on the development
of small and medium sized businesses, in mills in Bolton.
However the current programme 2000-2006 expires at
the end of this year. Consultation is taking place on a new
programme 2007-2012, however given the expansion of
the European Union, areas like Bolton will have even less
priority for stretched European Funding. If funding is
made available to the area it is likely to focus upon
education, training, skills development, business support
and the like, rather than physical development. What
European Funds are made available to the region will be
the subject of much competition.
B3 Northwest Regional Development Agency
The Agency operates a delegated system of funding
approval. Sub-regional partnerships, in Bolton’s case, at
the Greater Manchester level, assemble business plans
for their areas, which in effect is a bid for the Agency’s
funds. Projects must be consistent with the Regional
Economic Strategy (RES). NWDA funding is limited and
there are many calls upon it. The prospects for obtaining
funding for mill conversion is therefore likely to be severely
limited - however this should not prevent good schemes
that satisfy RES objectives and will have a catalytic
impact from being submitted to the Agency.
B4 English Partnerships
Given English Partnerships (EP), the national regeneration
agency, commitment in surrounding authorities with
Housing Market Renewal Pathfinder initiatives, it is
unlikely that they would be persuaded to become
involved in refurbishing mills in Bolton.
B5 Lottery Funding
There may be opportunities through the Heritage Lottery
Fund for assistance towards the protection/refurbishment
of mill buildings, but again this is a scarce resource and
competition for funds is fierce. There are a number of
areas, like the Moses Gate area, where funding could be
sought through Townscape Heritage Initiative funding.
This source of funding will require match funding from
other public sector sources. Funding can be used for
public realm works and building restoration in the area.
22
As Bolton already has a THI, in the town centre, the
prospects to obtain another are limited.
B6 Planning Obligations – Creating an Employment
Land Development Fund
Informed in part by this study, Bolton Council is
considering the implications of adopting a clear and
reasonable developer contributions policy to be utilised
when a change of use application is submitted for
employment allocated sites. Where this change is to a
higher value use we have proposed a system which
allows a charge to be levied on a developer as
compensation for the loss of employment land. These
charges could be collected into a fund – the provisionally
entitled Employment Land Development Fund - which
could then be used by the Council to carry out activities
which assist local economic development. A primary
objective of this fund might be to assist in the repair and
refurbishment of mills in employment use – though it
would have to take into account all employment allocated
or former employment sites, not simply mill premises.
Analysis of such policies elsewhere, and the early
stages of Bolton Council’s policy formulation have been
undertaken, and this information is now with the Council
for further consideration. Given the complexities of the
statutory planning process this option has to be viewed
as a longer-term option.
B7 Bolton Council
Like many Councils, Bolton does not have the financial
resources sufficient to tackle all of its regeneration
priorities and is reliant on other sources whether this be,
NWDA, Lottery or Europe. However, as outline above,
support from these sources is uncertain and likely to be
scarce. This situation, applicable to almost all local
authorities, has been recognised by central Government
and local authorities are being asked to consider how
they can make better use of their land and property
assets to deliver regeneration. This is a borough wide
issue and not just restricted to mill development. It is
therefore not thought appropriate to go into this potential
source.
Appendix B
Funding opportunities
B8 Private Sector Funding
In the light of the above showing the scarcity of public
sector assistance, the main source of funding for the
refurbishment of mills will have to come from the private
sector. To enable the private sector to invest in this
valuable asset there are a number of actions that the
Council can consider:
• To provide clear policy guidance;
• To be flexible in allowing higher value uses into mill
buildings;
• To prepare masterplans/development frameworks
which give developers a clear understanding of the
future direction of development within an area;
• To assist the exchange of best practice between mill
developers;
• To direct mill developers to skilled practitioners and
trades people;
• To consider investing in areas surrounding mill buildings,
i.e. new roads, landscape improvements, etc;
• To consider taking space within refurbished buildings.
All these actions can play an important role in giving
developers confidence to invest in a mill project.
B9 Note on State Aid Limitations
At present assistance to the private sector from the
private sector is limited by European Commission “State
Aid” rules. These limit the amount of public assistance to
large developers to 15% of the capital cost of a project.
Small or medium sized developers can access up to
25%. There are exceptions to this which include
residential development (up to 60%), heritage schemes
(up to 100%) and reclamation where some refurbishment
of mills could be acceptable (up to 100%). These rules
are currently being reviewed by the UK Government and
Europe. The new scheme is likely to come into force at
the beginning of 2007.
23