HS2 PHASE 2 STATIONS

LCR Development Reviews

Sheffield Victoria Station

27 January 2014

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Contents

Executive Summary

1. Introduction

1.1 London & Continental Railways

1.2 Background

1.3 Development Reviews

2. HS2 Station Proposal

2.1 Urban Context

2.2 Proposed HS2 Station Design

3. Wider Development Area

3.1 Planning Policy Context

3.2 Land Ownership

3.3 Development & Market Background

3.4 Economic Growth

4. Analysis

4.1 Station Design

4.2 Connectivity and Interchange

4.3 Station & Interchange - Conclusions

4.4 Development & Delivery

5. Summary of Recommendations

6. Conclusions

Appendix 1: Sheffield Local Plan: Pre-Submission Proposals Map

Appendix 1: HS2 Victoria Sheffield City Council Ownership Plan

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Executive Summary

In autumn 2011, High Speed 2 (HS2) requested a presentation of the experience of London &

Continental Railways Limited (LCR) in relation to delivering regeneration around the HS2 stations.

From this presentation, LCR was asked to suggest how it could assist HS2 in promoting regeneration

and development through Government’s investment in HS2 and LCR has undertaken Development

Reviews of all the Phase 1 and Phase 2 Stations.

The Phase 2 consultation route provides for a station at Sheffield Meadowhall, adjacent to the

Meadowhall shopping centre, close to junction 34 of the M1 motorway. The site is approximately four

miles north east of central Sheffield and three miles south-west of Rotherham, and linked to both (and

other regional centres) by existing rail links.

Sheffield City Council has lobbied for an additional or alternative station to be located closer to the

city centre at the former Victoria Station site. It is understood that this proposal was rejected at

optioneering stage by HS2 Ltd for a number of reasons, including the cost of additional tunnelling,

additional journey times and the views of neighbouring authorities. Sheffield City Council has,

nonetheless, requested LCR to undertake a Development Review of the regeneration opportunities

that might arise from a station at Victoria. A costs/benefit comparison of this location compared to

Meadowhall is specifically not a matter for this report, which instead includes a review of the earlier

HS2 feasibility work together with observations on the proposed station design, transport

interchange, regeneration opportunity and other issues for consideration. In addition, the planning

context and the market background in the locality have been reviewed.

The potential economic benefit of a station at Sheffield Victoria has been the subject of a variety of

previous reports, which estimate between 7,000 and 9,000 net new jobs could be created, together

with 900 homes, all close to a ward which is in the top 1% of deprived wards in the UK. Views differ

on how much, if any, of this would be delivered without an HS2 station, however it is LCR’s opinion

that a station would be a significant catalyst to achieving this.

The Victoria location offers major opportunities for urban regeneration (on a par with, if not greater,

than the most regeneration-friendly of other HS2 stations), including:

- The proximity to the centre of the fifth largest city in the UK, and the most significant in South

Yorkshire, providing strong underlying economic drivers,

- The history of successful recent regeneration in this part of the city and associated mixed use

occupational market,

- The availability of land and sites to accommodate growth,

- Existing good connections to the city and the region, with opportunities to further enhance

these,

- The potential to address existing deprivation and dereliction,

- Riverside locations and heritage buildings and structures.

There are barriers to regeneration (such as land assembly etc), however, indicating that a purely

market-led approach may not be successful, and degrees of public sector intervention will be required.

In particular, the current connectivity (notwithstanding relatively short distances) between the

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Victoria location and both the city centre and the Sheffield Midland Station requires attention and, in

particular, rail connections to adjoining regional centres. Improving these regional connections in to

Victoria will be key to maximising wider economic benefits.

Victoria is an exceptional location for a station, with its vantage point and commanding views over the

city. There are some challenges and opportunities for the design of a well-connected and integrated

station interchange at this location. Addressing these in a comprehensive and integrated manner can

deliver a landmark HS2 station and transport hub at Victoria - one which, combined with

complementary high quality urban realm and retail, could create an attractive place and destination

in its own right – providing the catalyst for regeneration in Sheffield and the region.

Should an HS2 station be located at Victoria, LCR recommend that the regeneration arm of HS2

engages with Sheffield City Council and SYPTE in the joint masterplanning and delivery of an integrated

programme of transport and land-use developments at Victoria that will optimise the benefits for

Sheffield City and the region.

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1. Introduction

This report has been prepared by London & Continental Railways Limited (LCR) for Sheffield City

Council.

1.1 London & Continental Railways

LCR is a wholly owned subsidiary of the Department for Transport (DfT). It was formed in 1996 as the

successful bidder for the Channel Tunnel Rail Link (now known as High Speed 1) PFI contract. LCR was

responsible for the successful delivery of High Speed 1 on time and to budget. LCR retains ownership

of the Government’s 40% share of Eurostar International Limited and has been restructured as a DfT-

owned property and development company.

Since inception, LCR has employed a small stations and property development team responsible for

facilitating large scale regeneration around the new international stations most notably at King’s Cross

and Stratford in London. The team was also involved as commercial client for the HS1 stations and

promoted synergies and opportunities between the stations and the surrounding development sites.

1.2 Background

“HS2 Regional Economic Impacts”, the KPMG report produced for HS2 in September 2013, suggests

that investment in HS2 could potentially generate £15billion of additional output per year for the

British economy in 2037 (2013 prices), by providing cities and regions with better connections. It also

recognises that these cities and regions will need to have the capacity to accommodate the resultant

growth in economic activity, including the availability of skilled labour and land in the right locations.

Fullest realisation of the potential benefits may therefore require complementary changes to create

an environment in each city in which businesses can develop. This may include, among other things,

the enhancement of connectivity (at local, city and regional level), additional development to

accommodate office, retail, residential, social and other uses (requiring major land-use developments

or regeneration schemes at some locations) and appropriate facilities and resources for the

development of the necessary local skills.

Thus, HS2 Ltd can help to maximise the benefits of HS2 by working in partnership with local planning,

transport and economic development authorities for each station to ensure:

The HS2 stations are properly integrated with good local, city and regional connections

This should create an efficient local transport network that builds on and distributes the

benefits of the high-speed link. In some instances, it may require investment in new or

enhanced connectivity. It should place each HS2 station at the heart of an efficient transport

hub that is as convenient and attractive as possible – recognising that interchange is typically

the least attractive part of a journey, and poor interchange can be a disincentive or barrier to

mobility, eroding the benefits of good connectivity.

These transport facilities are carefully integrated into surrounding land-uses and land-use

developments

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This may provide a unique opportunity to deliver high-value development at and around the

HS2 stations, that takes greatest advantage of its location, and that will contribute to the

economic development and, where appropriate, regeneration of the area. This should

incorporate high-quality public realm improvements that will enhance the value of the

property development, and the quality of life of those who live, work and play in the area, as

well as those who travel through it. Altogether potentially creating an economically and

socially vibrant destination in its own right.

These investments are carried out in a way that supports and enables (or in some cases

unlocks) wider regeneration schemes, to maximise the long-term economic benefits for the

city/region

This will be most effective and beneficial when done within the context of a masterplan or

shared vision for the wider area – the developments at and around the HS2 stations can then

provide a potent nucleus of earliest economic development that will support and kick-start

development and regeneration across the wider area.

An appropriate skills and training programme is jointly established with the local economic

development authorities

This should be designed to support the longer term economic growth in the city/region, and

to ensure that maximum social benefits are realised in the city/region, by providing local

people with a range of necessary skills. At some locations, this may involve collaboration with

local industries, especially where there are major employers or industry clusters.

Altogether, this approach will help stimulate economic activity around the HS2 stations, by creating

places that are considerably more attractive for businesses to relocate, and enhancing the capacity of

these cities/regions to accommodate the wider growth in economic activity that will result from the

investment in HS2. While requiring complementary measures and funding, it will provide the greatest

return on central and local government investment – not only the financial return from the relevant

property developments, but also the greater, longer term social and economic benefits from the

growth in economic activity generated around these stations, and across the wider areas, including

increased tax yields.

1.3 Development Reviews

LCR has provided briefings to HS2 on its experience in relation to delivering regeneration around the

HS1 stations. LCR has subsequently undertaken Development Reviews of each of the Phase 1 HS2

stations and has had a small team seconded to assist HS2 on development matters. This team is now

carrying out similar reviews for the Phase 2 stations.

For each of the Phase 2 station sites (Leeds, Manchester Piccadilly, Manchester Airport, Crewe, Toton

and Sheffield Meadowhall), LCR is undertaking a Development Review.

During the optioneering phase Sheffield Victoria and Meadowhall were identified amongst the

possible HS2 station sites. Additional cost and journey times associated with Sheffield Victoria were

contributory factors in the decision to select Meadowhall as the new HS2 station to serve the Sheffield

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area, and consultation is underway on this proposal. Sheffield City Council has requested LCR to carry

out this additional Development Review that will consider the development and regeneration

potential that could be unlocked or stimulated as a result of siting an HS2 station at Sheffield Victoria.

LCR has not reviewed the overall case for and against an HS2 station at Victoria, as opposed to

Meadowhall, and any relative cost/benefit analysis of the two locations has not been the subject of

this review.

This Development Review also considers the station design, interchange and route information

previously developed by HS2 and how they may be improved to contribute to the wider regeneration

of Sheffield.

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2. HS2 Station Proposal

2.1 Urban Context

The area surrounding the Sheffield Victoria site is very mixed in its character in terms of land use,

development and urban quality and is very much an area in transition. The station site is located on

the northern fringe of the city centre, being segregated by the busy dual carriageway of the city inner

ring road.

The wider area has been the focus of regeneration intervention in the past and there are noticeably

pockets of high quality modern development such as Victoria Quays, the Kelham Island development,

new hotels and offices as well as student accommodation. In contrast other areas remain either

derelict, underused or as empty sites in interim uses such as surface car parking.

The local environment is dominated by the elevated presence of the Wicker Viaduct, the prominent

Royal Victoria Hotel and its approach ramp (Victoria Station Road). The viaduct positively contributes

to the streetscape of Wicker but also appears to act as a barrier to the spread of development – to the

north the quality and scale of new development is notably less and the level of industrial use and

dereliction higher.

The area is bisected by the River Don as well as the Sheffield and Tinsley Canal, the basin of which

underpins the Victoria Quays development. The presence of these water features through the area

presents a considerable opportunity to aid regeneration now that, as we understand, flood alleviation

measures have been, or are to be implemented. Whilst there is access to the riverside in part, there

are opportunities to enhance the riverside area and make it more attractive as a walking and cycling

route.

Footfall through parts of the area appears relatively low which impacts on the extent and quality of

the retail and catering offer currently available. The underuse of the arches on Furnival and Sussex

Street detracts from the streetscape.

The area has retained a legacy of historic or interesting industrial buildings, heritage features and

structures which together enhance the character of the area and provide considerable potential for

future regeneration and reuse. The Kelham Island development, the Aizlewood Mill Business Centre

and Victoria Quays provide good examples of what can be achieved by working with heritage assets.

The Victoria area has many of the attributes that are generally associated with successful high quality

urban regeneration including heritage assets, water, character, interesting topography and a critical

mass of available sites. Whilst the area is mixed in character today, there is considerable potential to

build upon the regeneration completed to date to expand the city centre beyond the ring road and to

start to influence land use change to the north of the Wicker Viaduct.

2.1.1 Location

The proposed HS2 Sheffield Victoria Station would be located to the north east of Sheffield city centre,

on the northern side of the A61 Derek Dooley Way dual carriageway, and 0.6 miles north of Sheffield

Midland Station, a walk of some twelve minutes on average. The new Sheffield Victoria Station would

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also be approximately ten minutes walking distance from the city centre. It would be constructed on

the site of the former Victoria Station, which was closed in 1970. The River Don and the Sheffield and

Tinsley Canal pass beneath the proposed HS2 platforms.

The former Victoria Station, which opened in 1851, was built on a raised structure approximately 10m

above the adjacent street level. The elevated structure consists of a steel viaduct to the east, and

viaducts with masonry arches and the Wicker Arch to the west. The Wicker Arch and station viaduct

are both Grade II* listed.

Most of the railway infrastructure was demolished in 1989, although a single freight line serving the

Stocksbridge Works and the Grade II listed Royal Victoria Hotel remain. An extension to the hotel and

car park has been built on part of the station site. The Royal Victoria Hotel (currently operated by

Holiday Inn) is at the elevated level of the former Victoria Station, and is connected to street level at

Exchange Place by Victoria Station Road, a long ramp which is also Grade II listed.

2.1.2 Site

The site of the HS2 Sheffield Victoria Station is a constrained site that brings with it a number of design

challenges. The River Don on the west side and Sheffield and Tinsley Canal are two physical features

that have informed both the Victorian railway and the HS2 station design. The other major constraints

include the height of the redundant railway line above street level and the number of listed buildings

and structures at the station and in the vicinity. Whilst the HS2 design assumes the demolition of the

Royal Victoria Hotel, significant engineering work is required to retain the viaduct arches. The site is

bounded to the south by the Derek Dooley Way dual carriageway which sits some 15 metres beneath

the elevated HS2 platform. Permeability across Derek Dooley Way to the city centre and height

differentials on site are in part addressed by the Victoria Station Road access ramp, but these issues

remain a considerable design challenge for a station in this location.

To the north of the railway the land earmarked for car parking and sitting between the River Don and

the Sheffield and Tinsey Canal is at grade and is currently used for light industrial, open storage and

gas storage.

2.1.3 Existing transport links

a) Rail

Sheffield Midland Station is situated to the east side of the city centre, 0.5 miles from City Hall, a walk

of some ten minutes on average, providing the city with good national and regional rail connections.

The station is well served by four train operating companies: East Midlands Trains, Transpennine

Express Trains, Northern Trains and Cross Country Trains.

These operators provide very frequent services with connections to many towns and cities in the

region and beyond, notably including:

• Derby & Nottingham, and beyond that to London St Pancras, and to Birmingham and the

southwest of England,

• Stockport, Manchester and Liverpool, via south west Sheffield,

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• Barnsley & Huddersfield via Meadowhall, and

• Rotherham and Leeds via Meadowhall, and beyond that to Leeds, York and Newcastle, and to

Doncaster.

The Sheffield Victoria Station site under consideration is 0.7 miles to the north of Sheffield Midland

Station, a walk of some twelve minutes on average. This route is currently not a particularly easy,

intuitive or attractive walk, as explained under ‘Pedestrian and Cycle Access’ below.

b) Tram

Sheffield Supertram is a high-quality public transport system, with three routes connecting Sheffield

city centre (and Sheffield Midland Station) with Middlewood and Malin Bridge, to the north-west of

the city, Halfway to the south-west, Herdings Park to the south and Meadowhall, to the north-east.

Each of these termini is served by a park and ride facility. Park and ride facilities are also located at

Valley Centertainment tram stop, and closer to the city centre at Nunnery Square tram stop. All of

these park and ride facilities have good road connections. To the east of Sheffield, the Meadowhall,

Halfway and Valley Centertainment park and ride facilities have good connections to the M1.

These tram routes have not only greatly increased connectivity through a high quality public transport

system, they have also brought the additional benefit of improved streetscapes along their routes,

especially in the city centre.

The Sheffield Victoria Station site is 0.4 miles from the nearest Supertram stop, Fitzalan Square/Ponds

Forge, a walk of some nine minutes on average.

c) Coaches/Bus

Sheffield city centre and suburbs are well served by a comprehensive bus network, with high-

frequency bus services.

Sheffield is well connected to the national coach network through its Sheffield Interchange (a

bus/coach interchange adjacent to Sheffield Midland Station) and Sheffield Meadowhall Interchange

facilities.

The Sheffield Victoria Station site is 0.6 miles from the Sheffield Interchange bus and coach facilities,

a walk of some eleven minutes on average. There are bus interchange facilities on Wicker, on the west

side of the Sheffield Victoria Station site.

d) Road Connections

The Sheffield Victoria Station site is conveniently located adjacent to, and on the north side, of the

Sheffield Inner Ring Road, also known at this location as Derek Dooley Way. This Inner Ring Road

passes underneath the existing ramp road which provides the sole road access to the elevated Royal

Victoria Hotel building and car park above, on the Victoria Station site. The Inner Ring Road is well

connected to Junction 33 of the M1 to the east of Sheffield, via the A57/A630 Sheffield Parkway. It

also has good connections to the surrounding suburbs of Sheffield.

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The Inner Ring Road performs a very important function in providing congestion relief in the city

centre. Keeping traffic flowing smoothly on this road is therefore vitally important, and enhancing

pedestrian crossing facilities while maintaining smooth traffic flows may require careful consideration.

e) Car Parking

As there is no longer an existing station at Victoria, there is no station car parking. The nearest off-

street public car park is to the south of the station site, and south of the Inner Ring Road, in Blonk

Street, providing 305 spaces. It is understood that this is currently well utilised. There are various other

off-street public car parks in the city centre to the south of Victoria, all of which are understood to be

well utilised.

f) Pedestrian & Cycle Access

The site under consideration for Sheffield Victoria Station is on top of a railway viaduct and associated

ramparts, currently some 10m above the level of the surrounding streets. The HS2 scheme involves

the establishment of platforms a further 5.9m approximately above this viaduct level. Currently,

pedestrian and cycle access from this level to the street is solely via the approximately 200m long two-

way ramp road that runs south from the viaduct to Exchange Place, spanning the Inner Ring Road. This

continuous ramp may, on its own, be considered inadequate for the purpose of pedestrian access to

and from a modern rail station due to DDA compliance issues.

The pedestrian routes to the city centre and to Sheffield Midland Station are not intuitive, especially

at street level. The elevated position at the top of the ramp road does offer views of both routes to

the centre, and a good sense of wayfinding, but this diminishes upon descent to street level. Nor is

either route easy or attractive, especially for people with mobility issues, as both involve movement

along and across very busy streets and junctions, with partially sub-optimal urban realm. In particular,

the Inner Ring Road and the Park Square gyratory are not easy or attractive to traverse en route to

the city centre and the Sheffield Midland station respectively. Any measures to improve pedestrian

access across the Inner Ring Road will need to take account of the potential impacts on smooth traffic

flows, and the consequences for city centre congestion.

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2.2 Proposed HS2 Station Design

Figure 1 shows the location and general design layout of Sheffield Victoria HS2 station as considered

during the optioneering phase. The existing elevated Victorian structure on which the former Victoria

Station sat does not provide sufficient space to accommodate the HS2 station design, platforms and

accesses. The design solution proposed by HS2 is a new viaduct with platforms sitting above the

existing structure with connections down to concourse level, forecourt and short-term parking. The

new station structure would span the Sheffield and Tinsley Canal and the River Don and sit above the

Wicker Arch. The station facilities would be accommodated at different levels (ie the new viaduct, the

existing station level and street level) as can be seen in the view of the station in Figure 2 and the long

section of the station in Figure 3.

Figure 1: Layout of HS2 Sheffield Victoria Station

The HS2 station would have two new platforms, each 415m long and 12m wide, providing four

platform faces. These platforms would be approximately 5.9m above the existing viaduct. Passengers

would gain access to the platforms by escalators and lifts from the station concourse level. Freight

trains would continue to pass through the station using the southernmost track.

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Figure 2: Facilities at HS2 Sheffield Victoria Station would span different levels

Figure 3: Long section of HS2 Sheffield Victoria Station looking from the south

The HS2 station concourse, forecourt and short-term parking would be to the south of the HS2

platforms, at the level of the former station and platforms, and would require the Royal Victoria Hotel

to be demolished. Stairs and lifts would connect the main concourse to a lower entrance and

forecourt at street level adjacent to the River Don.

Forecourt arrangements at the HS2 Sheffield Victoria Station would be split due to the constrained

nature of the site which is framed by water ways and the dual carriageway to the south. One forecourt

would be to the east of the new HS2 station concourse, and would provide the main station entrance

and the forecourt for private car and taxi traffic. This forecourt would be at the level of the Royal

Victoria Hotel and would be accessed via Victoria Station Road from a junction at Exchange Place.

Opportunities exist for a new tram stop to the east of the main forecourt.

A second, lower level, forecourt would be at street level opening up on to the east bank of the River

Don. A new footbridge over the River Don would provide pedestrian access from this forecourt to an

area in front of the Wicker Arch where enhanced bus facilities would be provided.

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Both short-term and long-term parking would be provided. Short-term car parking would be provided

underneath the HS2 platforms. Multi-storey car parks north of the new station would provide long-

term parking and would be connected to the new station by pedestrian links, and vehicular access

would be from Sussex Street.

2.2.1 HS2 Proposals - Connectivity

The HS2 Phase 2 Command Paper (Investing in Britain’s future: Phase Two: The route to Leeds,

Manchester and beyond – January 2013) identifies the Sheffield Victoria Station site as the best

performing option for a Sheffield city centre station. It also identifies connectivity of this location as

an important issue, in particular regional rail connectivity, on the basis the existing Sheffield main line

station is one km distant, a walk of some twelve minutes on average. Realisation of HS2 benefits for

the wider region as well as Sheffield city will require best possible rail connectivity to other places in

particular Barnsley and Rotherham. The Command Paper identifies a Sheffield Supertram extension

as mitigation of this constraint on rail connectivity, in order to provide an equivalent level of regional

connectivity to a Meadowhall HS2 station. It also reports that Sheffield City Council and other delivery

partners have suggested reopening the disused Sheffield Attercliffe station located 500m to the east

of the Victoria site.

The HS2 Phase 2 Engineering Options Report (January 2013) suggests connection to Sheffield Midland

Station by either a dedicated bus service or connection to the Supertram network via a new loop, and

it indicates provision for a tram stop at the proposed Sheffield Victoria Station.

The facilities described in 2.2 above for private car and taxi pick-up and drop off, and for short- and

long-term car parking, take advantage of the existing good road connections to Victoria, including the

Inner Ring Road and its connections to the M1 to the east, and to the city centre and suburbs.

Also, the facilities described above in 2.2 above for a bus interchange on Wicker, to the south of Wicker

Arch, would take advantage of the comprehensive bus network, with high-frequency bus services that

serve Sheffield.

The HS2 Phase 2 Engineering Options Report (January 2013) states that the city centre would be a ten

minute walk by existing routes, with pedestrian access to the high-level station via the Victoria Station

Road ramp, which spans the busy Inner Ring Road, and via the street-level entrance of Wicker, on the

north side of the Inner Ring Road.

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3 Wider Development Area

3.1 Planning Policy Context

The Sheffield Local Plan, formed of the Core Strategy (March 2009) and Unitary Development Plan

saved policies and Proposals Map (March 1998) and the Pre-Submission Draft City Policies and Sites

and Proposals Map dated April 2013, is the overall development framework for the Sheffield area.

The latter of these documents will not be submitted to Government and will instead be incorporated

into the new Local Plan which will include a review of the adopted Core Strategy.

3.1.1 Core Strategy

The Core Strategy has a number of policies that are relevant to the Sheffield Victoria Station area and

the land between the station and the Heart of the City. These include policies CS1 and CS2 which both

give priority to using previously developed land for new business development. Policies CS3 and CS4

identify the city centre office development as being a crucial driver for the transformation of the city

economy and a vibrant centre with offices underpinning and supporting a range of other occupiers

including shops, leisure and complimentary hotels.

The Core Strategy identifies a number of Priority Office Areas within the city centre and envisages

prestige offices being located in the ‘Heart of the City’, knowledge based industries in the Sheaf area

with close links to Sheffield Hallam University and professional, legal and financial services in the

Castlegate area. Wicker/Riverside, West Bar and Bridgehouses are identified separately as transition

areas in the city centre where manufacturing and industry should not expand where it would detract

from the city centre and industrial uses should be encouraged to relocate as regeneration

opportunities arise and alternative sites become available. The close proximity of the Courts to these

areas would encourage legal and professional offices uses.

Policy CS17 and CS27 seek to strengthen the city centre quarters and promote interaction and physical

links between them. Wicker/Riverside, West Bar and Castlegate are identified as mixed use areas with

potential for office, residential, hotels and complementary retail and are key to linking the Heart of

the City to both Victoria Quays and Sheffield Victoria Station. CS27 focuses on housing in the city

centre and recognises the contribution that city neighbourhoods can have to the vitality of the city.

An industrial sector is identified on the land to the north of the railway line, fronting the River Don

and the Sheffield and Tinsley Canal. To the west of the River Don, the new Tesco store and Saville

House and car showroom dominate the Saville Street frontage, however key sites at the southern end

of Saville Street and Spital Hill remain undeveloped and are allocated as office, business and industrial

areas. To the east of the River Don the land is zoned in the Core Strategy for industrial uses and is

not yet viewed as a transition area – current uses include the gasometer, industrial, storage, Attercliffe

Crucible Works and open storage uses.

The latest Proposals Map (see extract below in Figure 4) shows the policies and allocations for the city

quarters between the city centre the Sheffield Victoria Station area. A copy of the Proposals Map is

also included as Appendix 1.

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Figure 4: city centre & North East Urban Area Site Proposals Map: Light pink representing ‘Business Areas’; dark pink ‘Priority Office’;

light orange ‘Central Housing’; purple ‘Industrial’; light purple ‘Business & Industrial’; blue ‘District Centre’. Red diagonal hatching

indicates an allocated site.

3.1.2 City Policies and Sites document

The Sheffield City Council, City Policies and Sites document (3 April 2013) flows from the Core Strategy

objectives and supplements the policies by informing the development management process and

further defining the spatial policies of the Core Strategy. A number of specific sites for development

are identified and allocated in the document.

3.1.3 City Centre Master Plan

The Sheffield City Centre Master Plan (CCMP) has been revised several times since its initial publication

in 1994, with the latest revision dated May 2013 under consultation. The CCMP is not a statutory plan

but acts as material plan when determining planning applications. The CCMP is broadly consistent

with the Core Strategy and sets out in detail the vision for developing the city centre, and a programme

for delivering improvements and regeneration to 2017 and beyond. The CCMP emphasises the

Council’s view that Sheffield city centre is the key driver of the ‘City Region’ economy and sets out a

vision for a vibrant, attractive centre with strong pedestrian and public transport links, a consolidated

retail offering, three new Business Districts (Central, Riverside and Sheaf Valley) and a broader housing

offering. In economic terms, the CCMP wishes to see Sheffield develop as a ‘strong, sustainable,

international economy driven by enterprise, innovation and knowledge’ by 2020, with an ‘unrivalled

quality of place’ and an emphasis on high performing sectors and building a highly skilled workforce.

Several areas highlighted for major development in the CCMP are within the vicinity of the Sheffield

Victoria Station. These are summarised below.

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3.1.3.1 Riverside Business District

The Riverside Business District (RBD), shown as area 2 in the Spatial Principles plan in Figure 5 below,

encompasses a number of quarters including the Castlegate, Wicker/Riverside, West Bar, Victoria

Quays and Sheffield Victoria Station areas. The masterplan envisages RBD as a location for large

floorplate offices targeted at legal and professional services which may want to cluster around the

Courts (in comparison with Grade A/Prestige Offices in the Central & Sheaf Business District and

smaller scale legal and professional offices in the Cathedral Quarter). The mix of offices and residential

development falling within the RBD combined with public realm improvements will encourage food,

drink and convenience shopping and create a vibrant part of the city that is busy both during the week

and at weekends. In its report, Nathaniel Lichfield & Partners (May 2013, Employment Land Review)

notes that improving leisure and retail offer is essential to continue to grow the city’s office market.

Figure 5: Spatial Principles plan (CCMP Consultation Draft, May 2013)

Castlegate, including Castle Hill Heritage Project and Park

As identified in the April 2013 City Policies and Sites document referred to above, the Castlegate

Quarter is a key site for offering the opportunity for comprehensive regeneration in the short to

medium term. The proposals include new office development, city centre living, retail, leisure and

potentially a hotel. Castlegate is a significant city centre area which contains the remains of Sheffield

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Castle and other sites of historic interest, but has suffered decline in recent years. A large indoor

market was housed in the area, which has now relocated to The Moor in the south of the city,

presenting an opportunity for redevelopment.

As shown in Figure 6 below, Castlegate forms a major gateway zone between the city centre and the

wider Riverside Business District. Its improvement is a key element of SCC’s vision for regeneration in

the city centre. As well as enhancing this historic part of the city in itself, redevelopment in the area

could unlock the potential of Victoria Quays, which is seen as underused, and the proposed Riverside

Business District.

SCC intends to demolish the former Markets, investigate and preserve the archaeological remains on

the site and deculvert the River Sheaf at its confluence with the Don, which will create space which

has provisionally been identified as the location of a riverside heritage-influenced public park, the

Castle Hill Park.

Further public realm creation is proposed in the form of Exchange Square, which could be delivered

by reclaiming space formerly used by the Inner Ring Road, now diverted further north of the city

centre. This pedestrianised square would interface directly with Victoria Quays, improving

connectivity to that area. SCC is keen to enhance links to the relatively large concentration of hotels

in and around Victoria Quays, and also to explore the potential for locating a hostel or backpacker

hotel (currently lacking in the city centre) in Castlegate. This would further enhance the vibrancy of

the area.

Around Exchange Square, development sites are to be created to enclose the square, and elsewhere

in Castlegate, the stock of historic buildings are to be considered for conversion to new, mixed uses,

including residential and small business as well as leisure and culture. The Old Court House and the

Castle House Co-op are viewed as particularly in need of redevelopment.

Improvements to Exchange Square will also enhance the connectivity to and from Victoria Quays, a

quarter that has undergone significant regeneration but is still identified as an area in need of repair

and recovery and which, despite the heritage buildings and waterfront setting, lacks vibrancy.

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Figure 6: Proposed Castlegate Development (CCMP Consultation Draft, May 2013)

Wicker/Riverside

The CCMP and the Wicker/Riverside Action Plan seek to enhance the contribution of the

Wicker/Riverside area to the city centre by increasing the residential population within the Central

Housing Area fronting the River Don and encouraging a change in land use from

industrial/manufacturing to office/commercial.

The Wicker/Riverside area, shown in the plan in Figure 7, is identified as being in transition where

reconfiguration arising from regeneration should respect the heritage and historic street patterns and

overall urban grain. The northern boundary of Wicker/Riverside also includes the former Victoria

Station, Royal Victoria Hotel and railway arches. The new office offer would seek to differentiate itself

from the existing office areas with a focus on legal, professional and niche office uses. Provision of

local retail hotel and leisure uses combined with improved accessibility to Victoria Quays, Castlegate

and West Bar will reinforce Wicker/Riverside as a vibrant Neighbourhood Centre (shown at E in the

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Spatial Principles plan in Figure 5) encouraging footfall from the Heart of the City in a northeast

direction towards Sheffield Victoria Station.

To the north-west of Wicker and sitting between Derek Dooley Way and the railway sit a concrete

batching plant, light industrial units and a number of vacant and cleared sites known as Bridgehouses.

Jewsons sits just to the west. (See P00089 on the Spatial Principles Plan in Appendix 1.) SCC has

earmarked the site for mixed use development.

Figure 7: Proposed development of Riverside Business District (CCMP Consultation Draft, May 2013)

West Bar

West Bar is a 7 acre development opportunity that sits to the west of Wicker/Riverside and north of

the Cathedral Quarter. Current land uses include a mix of former industrial, office and surface car

parking set around a suboptimal street pattern that impedes connectivity through to Nursery Street

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and Kelham Island. Significant regeneration opportunities exist in this area and the Core Strategy

envisages a mixed use scheme, with offices, residential and open space. It is thought that the close

proximity of the Law Courts may attract office tenants with links to the legal profession. Occupiers of

older office stock in the Cathedral Quarter may also be attracted to newer grade A office space.

3.1.3.2 The Steel Route

The Steel Route is a proposed chain of high-quality pedestrian and cycle spaces which is to be

developed to provide legible, attractive routes through to the city centre from the Wicker Arch in the

north east, to Moorfoot in the south west.

Its route will improve connectivity to Victoria Quays, the proposed Castle Hill Park and Exchange

Square, and will significantly improve permeability and connectivity to the city centre from the

Sheffield Victoria Station site and beyond. The Steel Route is shown coloured green in the Proposed

Castlegate Development plan in Figure 6.

Work is now underway on the Steel Route, which adopts a similar approach to that used in the already-

established Gold Route, which joins Sheffield Midland Station to the University of Sheffield campus

via a number of attractive public realm spaces developed in the ‘Heart of the City’ area. The new route

will be developed incrementally, as opportunity arises.

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3.2 Land Ownership

LCR has not undertaken a detailed independent review of land ownerships in the key regeneration

areas around Sheffield Victoria Station and has relied on the review of landownership information in

the CBRE Property & Financing Solutions for HS2 Stations report (dated 12 September 2013). In

summary, SCCs land interests in the Wicker area are fairly extensive but the sites are fragmented and

often subject to long leasehold interests. A plan showing SCC land ownership is included in Appendix

2. The CBRE review found that Sheffield City Councils land holdings are concentrated in the Castlegate

and West Bar Quarter regeneration areas. At West Bar Bolsterstone Group owns three development

sites within the area that are cleared and ready for high density multi-storey development. The

gasometer site to the north of Victoria Station and the land east of Chatham Street (both owned by

utility companies) are two other substantial tracts of land in single ownership.

The use of compulsory purchase order (CPO) powers is likely to be required to drive forward the

regeneration envisaged in CCMP. CPO associated with the construction and operation of HS2 will be

implemented but there is a likelihood that most of the HS2 construction sites in the Sheffield city

centre will be in close proximity to the station and trace. Derek Dooley Way appears to be a logical

southern boundary in the vicinity of the station with the Bridgehouses land offering additional

construction space that could be used with little disruption to existing businesses. To the north of the

railway the land fronting the River Don and Sheffield and Tinsley Canal, including the gasometer site

are potential construction sites that would minimise the impact of HS2 construction on Sheffield and

help bring forward former industrial sites for regeneration post construction of HS2.

The CBRE report also touches on the important role that CPO powers can play in driving forward

strategic land assembly in regeneration areas where land ownership is fragmented or complex title

matters are frustrating development. It is likely that Wicker/Riverside will be one of the regeneration

areas where the use of CPO powers would have maximum impact and deliver greatest benefit. We

note that SCC is well versed in promoting the use of CPO to assemble land with recent schemes

including the New Retail Quarter. The current HS2 Hybrid Bill proposes that HS2 Ltd is granted CPO

powers for regeneration (in addition to those required for railway construction), although the intent

is that these would only be used in partnership with the relevant local authority, providing an

alternative solution.

There is also merit in working closely with existing landowners and partners to assemble key sites in

the regeneration areas purchasing on both a reactive and proactive basis as and when opportunities

arise.

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3.3 Development and Market Background

The Sheffield city region has a diverse economy and encompasses more than 1.8 million people and

around 700,000 jobs. The city region is located strategically in the centre of the UK and comprises

nine local authority areas with Sheffield in the west and Doncaster in the east as the prime

employment centres. Sheffield is the fourth largest city in England.

The area’s economic base has transformed over the last twenty years from being dominated by

traditional manufacturing to a wider range of knowledge economy sectors including advanced

manufacturing, healthcare technologies, low carbon, creative and digital carbon industries. The

economy of the city region has an estimated output of more than £24.7 billion and contains

approximately 55,000 businesses (Sheffield City Region: Economic Overview, March 2013).

3.3.1 Office

The traditional location for offices in Sheffield city centre is the Cathedral Quarter, although newer

concentrations of office floorspace have developed in three other areas since the early 2000s: Central,

Riverside and Sheaf Valley. The city centre contains total office floorspace of 5.5m sq ft, spread across

237 buildings, approximately 28% of which is Grade A and 40% is Grade B. Circa 20% of the total is

vacant (Sheffield city centre Master Plan 2013 – Consultation Draft, May 2013). There is a shortage of

supply of Grade A space, with none currently available and none being constructed. The latest CCMP

targets the creation of 1.5m sq ft of additional office floorspace and 7,000 office-based jobs by 2023,

to be delivered by completing developments that are underway and prioritising certain sites, such as

the Riverside Quarter discussed above.

BNP Paribas’ Autumn 2013 Yorkshire Office Market report also highlights shortages in Grade A space,

but suggests there is ‘renewed positivity’. Uptake in office space in Q1-Q3 2013 increased by 19% on

the corresponding period for 2012, up to a total of 192,188 sq ft. The forthcoming speculative

development of 76,000 sq ft of prime space at 3 St Paul’s Place also points to an improvement in the

market. This will be the city’s first major office development in over five years and is expected to

encourage further development.

The amount of office space being taken in the city centre has increased on 2012, whereas out-of-town

uptake has reduced. Headline rents in Sheffield are £19.50 per sq ft, a figure which has remained

static for the last three years. 18-24 months rent free are typically negotiated on a ten year lease.

(Yorkshire Office Market – Autumn 2013 – BNP Paribas report)

In its report, Nathaniel Lichfield & Partners (May 2013, Employment Land Review) refers to the 2013

Sheffield Office Stock Study which records stable levels of demand overall, with continued demand

within the Grade A and B sectors. Nathaniel Lichfield & Partners also refers to Knight Frank Sheffield

Offices Market Update Q4 2012 which suggests that interest in office space in Sheffield is improving.

3.3.2 Residential

The latest available Annual Housing Market Bulletin prepared by SCC (drawn from Land Registry data)

provides a summary of residential sales for 2012. It reveals an average house price for Sheffield of

£113,716, down 17% on 2007, and significantly lower than the national average of £160,888. A total

23

of 5,277 residential properties were sold during the course of the year, with an average time on the

market of 26 weeks. Private rents have increased by 14% over the past five years to an average of

£623 per month. Burngreave, immediately to the north of the viaduct at Sheffield Victoria Station, is

identified as the cheapest place to buy property in the city, at an average of £56,865 in 2012.

The latest available quarterly Housing Market Bulletin (covering July-September 2013) reveals a

modest improvement, with an average house price for Sheffield of £115,257, an increase of 1.92% on

the previous quarter but only 0.04% on the corresponding quarter for 2012. This compares with a

national average of £167,063, an increase of 3.02% on the previous quarter and 3.42% for July-

September 2012 quarter. Private rents have fallen somewhat to an average of £604 per month.

The CCMP Consultation Draft sets out objectives for Sheffield to encourage more city centre living,

including in areas which currently have little or no residential occupation such as Castlegate. Prior to

the economic downturn, some depopulated areas had begun to be reinvigorated, with new

developments in former industrial areas predominantly attracting students and young professionals.

However, growth has stalled, with over 30 city centre sites with residential planning permission

currently on hold (Sheffield city centre Master Plan 2013 – Consultation Draft, May 2013).

According to the CCMP, the student/young worker housing markets remain active and are capable of

attracting finance. However, SCC is trying to direct developments serving these types of occupier to

specific sites, or to encourage developers to widen their offering to cater for a broader range of tenant

groups. SCC believes increasing numbers of social groups inhabit the city centre today, or wish to

relocate there, and it is undertaking research to better understand their needs. This will inform policy

development.

3.3.3 Industrial

Nathaniel Lichfield & Partners (May 2013, Employment Land Review) notes that Sheffield has a

strong industrial property market. Consultation with stakeholders suggests that current demand for

industrial space outweighs supply, and that there is a shortage of quality modern stock. The Sheaf

Valley provides space and is attractive to small scale industry where its location close to the local

workforce is of importance. Much of the space in the Sheaf Valley is old but is adaptable to meet

the needs of the market.

3.3.4 Retail

The city centre retail offering is described as ‘limited’ in the CCMP with factors such as out-of-town

shopping (for example at Meadowhall) and the growth of internet shopping being contributing factors.

The new indoor Moor Market at Eyre Street and Cumberland Street opened in November 2013. It has

196 stalls selling a wide range of products including fresh fruit and vegetables, meat and fish, jewellery,

crafts and clothes.

With the departure of Hammerson from the Sevenstone retail scheme in July 2013, SCC is now seeking

a new development partner to deliver a New Retail Quarter in the city centre to provide modern,

flexible space and attract quality fashion retailers. SCC aims to complete the scheme in 2018/19.

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At a more local level, SCC approved a citywide strategy to help and support local shopping centres in

2011. In July 2013 a Shop Front Improvement Scheme was launched in Darnall. A similar scheme is

now being considered for Spital Hill, north of Victoria Station. It is hoped that improvements to the

front elevations of existing businesses will in turn attract further investment by the businesses

themselves. Improvements will also be made to the streetscene and public realm.

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3.4 Economic Growth

Genecon (February 2012, Maximising the economic impact of HS2 investment in Sheffield) notes that

a station at Victoria would have the potential to become a driver of place development, becoming a

centrepiece for a new city centre business quarter. A station at Victoria would act as a major catalyst

in accelerating city centre development, and underpin the ongoing transformation of Sheffield city

centre as a primary economic driver for the city region.

The report notes that HS2 has the potential to be a stimulus for improved rents, and could significantly

impact on the viability of development and regeneration schemes. Genecon estimates that station

investment at Victoria will generate between approximately 9,400 and 12,100 net additional jobs and

between 170,000 sq m and 220,000 sq m of additional commercial floorspace, and up to 800

residential units. The majority of additional jobs would be in the financial and insurance services,

professional/scientific/technical, administrative and support services, and public admin and defence

sectors. In contrast, Temple-ERM (March 2012, Options for Phase 2 of the high speed network:

Appraisal of Sustainability) estimates that Sheffield Victoria Station could create 7,700 net additional

jobs and support 900 housing units.

The HS2 Options report goes on to say that the station would conflict with three site allocations

proposed within the Sheffield City Council Core Strategy (2009) but acknowledges that provided the

detailed design is taken forward as part of a masterplan-led approach, the station would support the

key objectives set out in the core strategy.

CBRE (September 2013, Property & Financing Solutions for HS2 Station (Final Draft)) believes that

without HS2 there is no real catalyst for change and no commercial imperative to bring forward a

development of any significant density. It considers that some 351,000 sq m could be developed

without HS2, whilst 903,000 sq m of development would come forward with HS2, including 250,000

sq m of residential and 373,000 sq m of commercial offices. It believes that with HS2, the vast majority

of the capacity will be developed. CBRE refers to a report by Drivers Jonas Deloitte & SKM Colin

Buchanan (DJD SKM) (December 2011, High Speed 2, SIFT 3: Relative Development Impact Assessment

(South Yorkshire) – Draft) which concludes that there is potential for development of 704,000 sq m of

space in an unrestricted policy environment

Volterra (September 2013, An assessment of the case for a city centre high speed rail station in the

Sheffield City Region) notes that most parts of the city centre would be within a 12 minute walk of a

station at Victoria, which would help to enable the development of the Riverside Business District.

The successful delivery of the developments proposed in the CCMP would in turn boost the city’s

competitiveness. Volterra also considers the location of stations on high speed routes in other parts

of the world, noting that the location of a through station in Lille has helped to generate additional

commercial activity in its centre, and that Cordoba in Spain saw urban regeneration around the high

speed station which was built in the city centre.

Nathaniel Lichfield & Partners (May 2013, Employment Land Review) notes that the city centre is a

key economic driver for Sheffield City as well as the wider Sheffield City Region. Historically

characterised as a heavy manufacturing city, employment in Sheffield is now predominantly in the

service sector. There is a shortage of Grade-A office accommodation in the city centre, and the report

notes that the key challenge for the city centre office market is reconciling the supply of space and

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voids, particularly of ageing poorer quality stock, with the need to provide additional Grade A

floorspace to support and sustain Sheffield’s position as the premier office location in South Yorkshire.

Locations such as the West Bar Triangle are important sites for development of city centre office

space. The report also notes that the city centre’s offer of leisure and retail is relatively weak in

comparison to cities such as Leeds, Manchester and Birmingham. Leisure and retail are seen as

essential attractions to the city centre office-based market and improving their offer is seen as being

essential to continue to grow the city’s office market.

Research into High Speed stations suggests that their beneficial impact on regeneration in the

immediate vicinity is not a given, and requires a number of complementary factors – notably

underlying economic drivers beyond purely transportation and an active delivery organisation or

structure. Similarly, successful regeneration can of course occur without expensive new transport

infrastructure (which does not always have a necessarily positive impact on the urban realm).

It remains the case, however, that the investment in an HS2 station at Victoria could play a powerful

role and that there are opportunities for development and regeneration associated with a new HS2

station at Victoria. The location of the station would reinforce the importance of the Riverside

Business District and allow development for a wide range of uses to be brought forward on adjacent

sites. The station would help to generate values which would allow heritage buildings to be renovated,

and would provide a stimulus to improve the public realm. It would foster high quality development,

and development in a holistic, rather than piecemeal, manner. It would provide an impetus to the

transition areas, helping to shift land use away from historic industrial uses towards a more mixed use.

A new HS2 station at Victoria would play an important role in creating a vibrant northern quarter on

the fringe of the city centre which would ultimately support the aspirations of SCC to encourage new

development in the city centre and support the regeneration of The Moors area to the south.

LCR believes that development brought forward without HS2 could be higher than suggested by CBRE

if there was an aspirational environment including a pro-active approach to compulsory purchase,

joint ventures, the promotion of SCC-owned land, and a flexible planning regime. HS2 would,

however, be a catalyst and would provide the potential for a step-change development. Accordingly,

LCR’s view is that the potential for development with HS2 would be likely to be between the two

figures put forward by CBRE and DJD SKM.

Outline proposals for a station that will not be completed for two decades does, of course, bring

potential problems as well as benefits. Uncertainty can cause blight, as investment decisions are

delayed, and property speculation can also be damaging. The construction phase can also have a

negative impact. Addressing these short term issues (through targeted land purchases/interim uses

etc) will be important to ensure mitigation.

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4. Analysis

The section below sets out the main LCR recommendations in respect of the current design of the new

HS2 station.

4.1 Station Design

This exceptional location with its vantage point and commanding views over the city, while posing

some accessibility and design challenges, offers great opportunities for an iconic landmark HS2 station

and transport hub which, combined with complementary high quality urban realm and retail, would

create an attractive place in its own right – providing a strong catalyst for regeneration in Sheffield

and the region.

The HS2 station proposals for this location were developed during an early feasibility stage and are

therefore at a conceptual design level. If a station at Sheffield Victoria was to be taken forward, the

design proposals would need to be developed through a comprehensive feasibility design study, to

arrive at an integrated multi-modal transport and land-use development scheme that will optimise

benefits for the city and region, taking account of all key stakeholder requirements. This report sets

out a number of headline comments below on particular design issues which would require further

consideration.

Given its location, a new HS2 station at Victoria has the potential to forge links between the Riverside

Business District, Castlegate, Victoria Quays and the Steel Route. On the northern boundary of the

city centre, it would be in an area that is currently on the fringe of the city centre. However, it would

have the potential to significantly alter the focus of the city by both widening the ‘outlook’ of the core

of the city centre towards the north and in turn by connecting the northern fringe with the core. The

local planning authority is therefore likely to seek a high quality design for the new station.

Vertical design and permeability

The principal issue affecting the design of the station is the fact that the station and its facilities will

span vertically over different levels, rather than being at grade. This may present challenges to

providing access between street, concourse and platform levels. Consideration should be given as to

whether, rather than being a constraint, this could provide design and commercial opportunities that

make a feature of and benefit from the vertical design. We recommend below that retention of Royal

Victoria Hotel should be considered. The hotel is elevated, and it would be worth investigating what

is beneath the hotel as there may be opportunities to use existing space beneath the hotel, or to

create new spaces, possibly linked to the arches under Victoria Station Road. We suggest below an

additional entrance at the eastern end of the station, and that it may be possible to provide access

from street level through one of the arches under the station. The vertical design of the station could

therefore be a stimulus to bringing forward development of the heritage structures of the former

station, in particular the hotel and the arches.

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Hotel and forecourt

The proposed design of the HS2 station requires the demolition of the Royal Victoria Hotel, shown in

the photograph in Figure 8. We would recommend that consideration be given to retaining this local

listed and attractive landmark at the main entrance to the new station.

The potential to incorporate all or part of the ground floor of the hotel into the concourse and the

new station should be explored. By way of example, the Grade II Great Northern Hotel at King’s Cross

has been restored and opens directly onto the new King’s Cross Western Concourse. Retention of the

Royal Victoria Hotel would be consistent with the hotel uses at the Riverside Business District and

Castlegate proposed in the Sheffield city centre Master Plan, and may offer the opportunity to

incorporate retail and leisure uses at ground floor level.

If the hotel is retained, a more linear station structure and forecourt may be appropriate. The quality

of the forecourt area would need careful consideration to ensure a welcoming and attractive

environment is created. Consideration should be given to relocation of the car and taxi drop-off/pick-

up facilities to make the forecourt area in front of the hotel more pedestrian-friendly, and perhaps

offering the opportunity to create a piazza style space.

Retention of the hotel would be complementary and could increase footfall and dwell time. The hotel

could become a destination in its own right. Access to the main entrance and hotel would be via

Victoria Station Road (see Figure 9), which would provide the principal direct link between the station

and Exchange Square and the city centre. Part of this access is currently used for car parking.

Consideration should be given to relocating the parking to provide an improved pedestrian route to

the station. It may be possible to also include a dedicated cycle route on this road.

Figure 8 (left): Royal Victoria Hotel Figure 9 (right): Victoria Station Road

Additional entrances to the station

The HS2 design proposed a new footbridge over the River Don to link the lower concourse with Wicker,

where enhanced bus facilities would be provided. Consideration should be given to creating an

additional western station entrance directly onto Wicker, adjacent to the west bank of the River Don,

providing a direct link between the station and enhanced bus facilities. This would also strengthen

29

the relationship of the station with the offices and residential accommodation in the Riverside

Business District, with the residential areas to the north of the station, as well as with the Steel Route.

A view of Wicker and Wicker Arch is shown in the photograph in Figure 10.

As the Steel Route will provide a pedestrian and cycle-friendly route linking Wicker to the city centre,

consideration should be given to providing cycle facilities at Sheffield Victoria station, including secure

cycle storage, hire, route information, and possibly repairs and sales. Consideration should be given

to the design and layout of bus facilities so as not to impede pedestrian flows between the Riverside

Business District and the station.

It may also be possible to create a further entrance at the eastern end of the station to provide direct

access to and from the short-stay car park and to a new tram stop. It may be possible to use one of

the arches to provide an entrance at ground level and access to the elevated levels of the station. An

eastern entrance would unlock the commercial potential of the arches, and would enhance the

relationship between the station and the Victoria Quays area. Provision of a new access across Derek

Dooley Way to link the station and Victoria Quays should also be considered. A view of Derek Dooley

Way is shown in the photograph in Figure 11.

An eastern access may lend itself to providing a drop-off/pick-up point on the north side of the station

for a revised car and taxi route which would take traffic north along Furnival Road, under the station

and east on Sussex Street to the drop-off/pick-up point. Part of the review of a revised taxi route

should include consideration of where it would be appropriate for taxis to queue. An entrance with

car and taxi drop-off/pick-up on the north side of the station would also connect the station to the

area to the north, and would benefit any waterside development to the north of the station.

Creation of an additional entrance at the western and/or eastern end of the station may require

duplication of facilities such as ticket barriers, escalators and lifts.

Figure 10 (left): Wicker and Wicker Arch Figure 11 (right): View of Derek Dooley Way

Car parking

There may be potential to reconfigure or relocate the multi-storey car parks from their proposed

locations north of the station to safeguard potential waterside development adjacent to the River Don

30

and the Sheffield and Tinsley Canal. Possible alternative sites for car parking may include the gas

holder site to the north of the station, or there may be an appropriate site south of the station. The

number of car parking spaces provided in the HS2 design is not clear, but we anticipate that it would

be a similar level to the provision at Meadowhall, that is 1,250 long stay spaces and 280 short stay

spaces, totalling 1530 spaces. It would be worth reviewing the number of car parking spaces required,

given Victoria’s city centre location, more so if sufficiently good connections are established to

regional rail services to reduce the demand for less sustainable road access.

International Services

The current station design appears to make no provision for international services. If there is a case

for providing such services in the future, passive provision should be incorporated in the design so

that this can be retrofitted.

The Arches

As can be seen in the photographs at Figures 12 and 13, there are brick arches under the viaduct.

There are also arches under Victoria Station Road (please see Figure 14). The station design should

not frustrate the commercial use of these arches. The arches currently have low grade uses such as

storage and car salvage. The arches north of the railway in particular would benefit from

refurbishment.

We note that the arches would be repaired, modified and strengthened as part of the works to

construct the elevated HS2 station deck and station approaches. Once repaired, the arches could be

used for retail and leisure (such as food and drink or gym uses) or for workspace or business start-up.

Leisure, café, bar and restaurant uses may be appropriate as part of a possible waterside development

adjacent to the River Don between Sussex Street and Furnival Road (a view of the River Don is shown

in Figure 16). This would provide opportunities to animate the north and south of the station with

new retail or commercial activities. Depending on the level of market demand, development of the

arches may need to be safeguarded until regeneration of adjacent areas provides sufficient demand.

The River Don flows under an arch at the western end of the viaduct, between the Royal Victoria Hotel

and the Wicker Arch. There is currently a pedestrian walkway linking the north and south sides of the

railway (see Figure 15). We would recommend that this pedestrian route be improved following

construction of the HS2 station to make it more attractive to users and encourage north-south

permeability. There may be potential to incorporate this walkway into the Steel Route.

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Figure 12 (left): Arches south of railway Figure 13 (right): Arches north of railway

Figure 14 (left): Arches beneath Victoria Station Road Figure 15 (right): Pedestrian walkway under viaduct

32

Figure 16: View of River Don, north of railway

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4.2 Connectivity and Interchange

4.2.1 Rail

As outlined in section 2.1.3, Sheffield main line rail station provides the city with very good national

and regional rail connections, but is one km from the HS2 station location at Victoria, a walk of some

twelve minutes on average. This does not constitute an ideal interchange solution, in terms of the

interchange journey time, the quality of the urban realm along the walking route, wayfinding and

permeability, or perceived personal security. Unmitigated, this would significantly erode journey-time

savings from the high-speed services, and significantly constrain interchange between HS2 and

regional rail services, which would in turn diminish the potential benefits for the region.

Optimisation of these regional benefits will require the best possible link between the two stations,

to provide a level of regional connectivity that is equivalent to the Meadowhall HS2 station option. A

number of link options have been considered, including a dedicated bus service, a tram extension and

reopening the former Attercliffe rail station some 500m to the east of Sheffield Victoria Station site.

The business case for the latter is not known, but it appears to have been discounted as an option.

This may warrant further consideration. It is noted that, prior to the HS2 proposals, a feasibility study

was carried out by Arup on behalf of Sheffield City Council and South Yorkshire PTE which identified a

feasible scheme for running commuter trains on the Don Valley Railway along the viaduct through

Victoria. It is not known what consideration was given to integrating these services into the HS2

proposals, although it is expected that this would significantly increase the spatial land-take

requirements along the rail corridor, with increased property, cost and environmental impacts.

Bus links, even dedicated shuttle bus links, are not generally considered ideal interchange solutions,

as they are at least perceived to provide a service that is of lesser reliability, speed, quality and capacity

than say a tram link.

A tram link or shuttle service could have the additional benefit of providing a direct link to the wider

city Supertram network, as well as a fast, reliable, good quality link the main line station and its

regional and national connections.

On the basis of currently available information, indications are that a tram link may be the best

deliverable option. However, there may be better options. If not already carried out, a full feasibility

study is recommended, to properly evaluate all link options, including interchange facilities, and to

identify the preferred best-value solution for this critically important link, to the satisfaction of city

and regional stakeholders. This study should of course be carried out within the context of the creation

of an overall vision for the Victoria area.

4.2.2 Tram

As outlined above in section 4.2.1, and subject to feasibility studies, the preferred option for an

acceptable interchange link between HS2 and regional rail services may prove to be a tram link

between the HS2 Sheffield Victoria Station and the existing main line station. This should also provide

better interchange with the bus and coach interchange facility to the north west of the main line

station, helping improve the city-wide and regional connections. It appears that this would simply

34

require a tram extension between the Sheffield Victoria Station site and the existing tram route some

500m to the south-east – albeit traversing an important junction on the Inner Ring Road and some

topographical level changes.

A dedicated shuttle tram link or loop would potentially have the additional benefit for HS2-regional

rail interchange of being less susceptible to service disruption, if it is not an integral part of the city-

wide Supertram service network.

A tram extension to HS2 Sheffield Victoria that is an integral part of the Supertram service network

would have the additional benefit for some of providing more direct and faster links to other parts of

the city and its suburbs. It is understood that Sheffield City Council and SYPTE wish to consider a tram

link from the mainline station to HS2 Sheffield Victoria as part of a proposed new city tram route to

the suburbs.

Any tram interchange options at Victoria will need to be considered within the context of a

comprehensive feasibility study, also in the context of the tram link option that is being considered,

as well as the other opportunities and constraints at Victoria. For example, a shuttle tram service could

simply enter the Victoria Interchange running parallel and to the south side of the HS2 viaduct,

terminating at a tram stop over the arches on the south east side of the station. On the other hand, a

tram loop would require a different design configuration, with the alignment of the platforms and the

track as it emerges from the Interchange being influenced by the preferred tram route and destination

beyond Victoria. In both cases, establishing the tram platforms at existing viaduct level (ie upper HS2

concourse level) would optimise interchange with the HS2 platforms a level above that. Consideration

should be given to how a tram route passing through Victoria might help unlock regeneration to the

north side of the station and viaduct.

4.2.3 Bus

As stated in section 4.2.1, a dedicated bus link is unlikely to be the preferred option for a link to the

main line station, although this option should be considered as part of an interchange feasibility study.

In any event, the Sheffield bus network should play an important role in connecting the HS2 services

to the city centre and suburbs. The HS2 proposal for a bus interchange facility in Wicker, adjacent to

the HS2-proposed forecourt, would appear to be the best option. Bus interchange is best served by

bus facilities that are on-street (whilst not impeding traffic flow) and adjacent to the station. The

location of such facilities on the Inner Ring Road to the immediate south of the station are likely to

impact on the critically important capacity and smooth traffic flow on that road. Any bus interchange

facility on Exchange Place would be so far south of the station as to incur interchange journey time

penalties. There may be opportunities for the provision of a consolidated bus station adjacent to the

station, but this would have an opportunity cost in terms of the alternative uses of high-value land

close to this key transport hub, and in any event may not be necessary as demand may not justify such

a facility.

Again, all these factors should be considered in a comprehensive feasibility study.

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4.2.4 Pedestrian Access

An efficient hub at this location must provide best possible interchange facilities for regional rail, bus,

private car and taxi pick-up and drop-off and car parking, as well as high speed rail station facilities.

The preceding sections of this report have considered these aspects in some detail. However, the most

important aspect is the need to provide best possible pedestrian movement, environment and

accessibility within the transport hub, and to and from the hub.

In this regard, Victoria presents particularly interesting interchange challenges and opportunities, in

respect of the vertical interchange between the three levels of the interchange, the north-south

permeability through the station arches and east-west movement across the River Don, between the

station and the forecourt and street at Wicker. Victoria also presents particularly important

interchange opportunities, in respect of pedestrian movement between the hub and the city centre,

the mainline rail station and its adjacent bus and coach interchange. While the establishment of good

public transport links into the city centre and mainline station will remain vitally important, the

creating good pedestrian routes will be equally important, and should be a key factor in a

comprehensive interchange feasibility study. Achieving this will not only make access to the transport

hub more attractive and help increase patronage, it will also make help make the quarter more

attractive to developers and potential tenants – an important place-making factor.

4.3 Station & Interchange - Conclusions

Victoria is an exceptional location for a station, with its vantage point and commanding views over the

city. There are a number of challenges and opportunities for the design of a well-connected and

integrated station interchange at this location. Addressing these in a comprehensive and integrated

manner can deliver a landmark HS2 station and transport hub at Victoria - one which, combined with

complementary high quality urban realm and retail, could create an attractive place and destination

in its own right – providing the catalyst for regeneration in Sheffield and the region.

If there was to be a HS2 station located at Victoria, the regeneration arm of HS2 should collaborate

with Sheffield City Council and its regional partners in the creation of a shared vision for this quarter.

Critical to the realisation of this vision would be the delivery of an efficient, high quality transport hub

and connections to other parts of the city and the wider region. This will require complementary

station and interchange facilities, including good quality retail facilities, and high quality public realm

and associated property development. This would significantly enhance development values

throughout this quarter and beyond.

This work would require demand modelling and forecast that are agreed between the parties, at both

strategic and interchange operational levels. This would inform the identification and evaluation of

options, jointly by the key stakeholders against their respective requirements, and enabling the

management of trade-offs between transport and land-use requirements and aspirations, to optimise

benefits for the city and region.

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4.4 Development and Delivery

An HS2 Station at Sheffield Victoria would provide a significant boost to the city centre both during

construction and following the opening of HS2. The Station would represent a significant investment

in the City and be seen as a huge vote of confidence. It is likely that the property market would respond

favourably with significant interest and development activity in the quarters to the north and east of

the city centre.

The fundamental characteristics of the city centre are very positive and we believe that significant

regeneration is capable of coming forward in advance of HS2. West Bar and the Castlegate Quarters

are the two opportunities where excellent central locations, relatively straight forward land ownership

structures and significant previous input are likely to deliver regeneration ahead of HS2. Both of these

developments have active private sector involvement (Bolsterstone and Carillion) and have been

allocated as office led mixed use schemes incorporating residential, open space and neighbourhood

shopping. In addition Castlegate’s proximity to the River Don and the cluster of hotels will also lend

itself to hotel and leisure uses. These allocation provide a degree of flexibility and allow the scheme

to respond better to prevailing market conditions. In addition to the design and build quality of the

schemes the relationship to the public realm and quality of the public realm will be key to encouraging

footfall and stimulating activity. Masterplanning in these areas needs to place emphasis on

connectivity and wayfinding into the Wicker/Riverside Quarter (including Sheffield Victoria Station)

and the Victoria Quays Quarter.

Wicker/Riverside

As referred to in section 3.1.3.1, Wicker/Riverside (the area of land bounded by Nursery Street, Wicker

and Derek Dooley Way) is a transition area with ambitions to move away from historic industrial uses

to a vibrant quarter where the residential neighbourhood fronting the River Don sits next to a new

office quarter with an emphasis on legal and professional services. The fragmented land ownerships,

historic buildings and associated street pattern have resulted in significant, though piecemeal,

regeneration development to date. Whilst historic buildings and street patterns need to be respected

there is scope for greater intervention, including the use of CPO powers, to consolidate

landownerships and improve the variety of development opportunities available to developers or

development partners.

Wider investment in the public realm is needed and the proposed investment in the Steel Route will

help improve the quality and consistency of the streetscape. These improvements should deliver real

and lasting benefits to the Wicker/Riverside Quarter by encouraging greater footfall which in turn

would increase economic activity and create a more vibrant neighbourhood. As with the Castlegate

and West Bar Quarters, the fundamentals (including river frontage, mixed use allocation in the Core

Strategy and a central location close to public transport infrastructure) are in place for regeneration

to commence in advance of HS2.

Confidence will play an important role – this will be needed at a national level through a stable

economy, a healthy residential and office market and a commitment to HS2 Sheffield Victoria station.

At a more local level developers will want to work in a proactive and flexible planning environment

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with evidence of successful partnering and regeneration being brought forward on the city centre sites

where regeneration and site assembly is more advanced.

The northern boundary of Wicker/Riverside also includes the former Victoria Station, Royal Victoria

Hotel and railway arches. Retention and renovation of the Royal Victoria Hotel as part of the HS2

scheme would strengthen the areas hotel and leisure offer and help activate the Sheffield Victoria

Station and the northern parts of the Riverside Business District and reinforce Wicker/Riverside as a

vibrant Neighbourhood Centre.

Land North of railway fronting River Don and Sheffield and Tinsley Canal and Bridgehouses and

Spital Hill

The land to the north of the former Victoria Station consisting of Effingham Street/Sussex Street, and

Blast Lane sitting to the east of the River Don and either side of the Sheffield and Tinsley Canal is

currently zoned for industrial use in the Core Strategy with uses on site including gas storage and open

storage. Use of this land for construction of HS2 and ultimately construction of carparking would

provide the step change needed to regenerate this area

Land at Bridgehouses (adjacent to Pitsmoor Rd and Chatham Street) and the southern end of Spital

Hill and Savile Street are pockets of vacant former industrial land that have been allocated in the Core

Strategy. National Grid has held discussion regarding the Bridgehouses site and the relatively straight

forward land ownership arrangements and allocation as flexible use areas may mean the site is

developed ahead of HS2. However, as noted in Deliverability below, the proximity of these sites to the

HS2 trace and ultimately the Sheffield Victoria HS2 station may mean that they are more suited to HS2

construction worksites followed by comprehensive higher value developments post construction. The

sites are discrete and their use as worksites would have limited impact on the wider residential

population or nearby businesses. The barriers to regeneration that would need addressing are

comprehensive land assembly, the removal of the gasometer, remediation of historic contamination,

topography and protection against flooding.

4.4.1 Deliverability

RegenCo

LCR is promoting the creation of an HS2 specific regeneration company – ‘RegenCo’ – that will be

tasked with working with local partners to promote the delivery of regeneration around HS2 stations,

addressing identified areas of market failure and capturing created value on behalf of the taxpayer.

The activities that RegenCo may undertake could include:

- Supporting the definition of a shared vision or masterplan around stations

- Production of a Development Infrastructure Funding Study

- Land acquisition

- Land pooling and other commercial arrangements with partners

- Promoting and enacting CPO in partnership with local authorities

- Site clearance and preparation

- Interim uses and estate management

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- Enabling infrastructure provision

- Influencing HS2 station design and construction strategy

- Influencing other transport provision/public investment

- Influencing the planning context

- Promoting development opportunities

- Seeking private sector development partners

- Jointly pursuing planning applications/seeking funders

- Jointly marketing/seeking occupiers

- Equity participation in development

- Eventual disposal of interest and provision of receipts to HS2/DfT.

RegenCo would need strong relationships with all public authorities in the region, HS2, and DfT as well

as being commercially focussed and responsive to private sector requirements. It would need revenue

financing for day to day activities as well as access to capital for investing in potential opportunities

either as a last resort (for example where the private sector was unable or unwilling) or where timely

investment would increase the return to the public purse. Whilst a national organisation answerable

to Central Government through the DfT, RegenCo’s local activities would be as a partner to existing

organisations. As such (and arrangements will vary across cities), it may well be appropriate that a

local Programme Board is established to include and co-ordinate all relevant bodies, with RegenCo

working towards the priorities set by this Board as well as by DfT.

Given the number of station locations and the pressure on resources, any intervention will need to be

carefully targeted at areas where the maximum impact can be achieved and where the market cannot

provide this. Whilst it will be able to take a longer term view than private developers, RegenCo will

still be run on a commercial basis, and investment will need to show an appropriate return. Given:

a) the central urban location of Sheffield Victoria,

b) the availability of derelict/under-utilised land,

c) the underlying strong economic drivers and associated recent regeneration successes in the city,

and

d) the potential to build upon the successes of Sheffield City Council and previous regeneration bodies,

Sheffield Victoria would be likely to represent one of the higher priority locations for any activity by

an HS2 Regeneration body.

Activity

As described above, considerable regeneration activity has occurred and is currently underway in

Sheffield, including in and around the Wicker area, and the current draft planning policy sets an

appropriate planning context for this to continue. Given the necessity to balance the requirement for

a commercial business case with the need to avoid displacing normal market activity, RegenCo would

have to examine closely where to get involved. Targeting activity at specific locations, probably in

priority order, would be sensible, and be based on an assessment of existing constraints and

opportunities.

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Establishing the ‘vision’ – which would take planning policy to the next stage and marry it with

commercial factors – would be the next step. A site assembly strategy – whether through land pooling,

private treaty purchase or CPO – would be required in order that an appropriate package could be put

to the development market, with the public sector having de-risked the opportunity as far as it can,

with the private sector taking on the development risk that it is best able to handle.

Establishing an appropriate arrangement with development partners, ensuring a fair value split

mechanism whilst designing a relationship intended to endure for the medium term, is critical and the

ability to defer receipts or convert land value into equity assists in this. Only with this route to delivery

established is it worth undertaking more detailed masterplanning, since any earlier work by the public

sector alone is likely to be nugatory. Whilst the private development partner thereafter moves more

into the fore, there is an important requirement for continuing liaison across the range of public sector

bodies through masterplanning, consultation, application and into construction.

Choosing discrete areas for this process, with RegenCo acting as occasional ‘honest broker’ between

public and private sectors (and across public sector interests), as well as providing a central focus for

regeneration within the various partnerships and undertaking limited specific capital investment (site

purchase and/or key enabling infrastructure) as well as research/promotion/lobbying etc, would

represent a sensible approach towards delivering the undoubted significant regeneration

opportunities associated with an HS2 station at Victoria.

Phasing

Existing regeneration activity should, of course, continue in the area, encouraging quality infill

developments in sites as they become available to increase density, activity and thus lettability,

particularly in those areas currently performing beneath potential, such as Victoria Quays.

Beyond this, our initial view is that Wicker/Riverside represents the most sensible place to commence

any area-based approach, since it is bounded by recent regeneration activity, but contains numerous

sites where redevelopment could occur. Ensuring continuity of operation for those existing businesses

that may stay or appropriate relocation in order to maintain existing employment would be important,

as would be the preservation of the existing historic street pattern and other heritage aspects.

Development of this area (ideally occurring closely following the redevelopment of Castle Market and

West Bar) would extend regeneration from the city centre out to the Sheffield Victoria Station site,

providing a strong setting for a new HS2 station and, subject to market take-up, potentially be largely

delivered prior to HS2 Phase 2 opening.

The station area itself would be the next priority, addressing the immediate environs of the new

station, including the variety of railway arches and other nearby sites and buildings. Given, however,

that this area would be heavily affected by HS2 construction, it would be difficult to deliver

regeneration prior to HS2 Phase 2 opening. Instead, the focus would be on influencing HS2 design

and construction to ensure that regeneration requirements dovetailed with the needs of

transportation and buildability. The potential re-use of some/all the Royal Victoria Hotel for station

accommodation rather than demolition and replacement by a low rise, modern building would be one

such example. The brick arches under Sheffield Victoria Station will be repaired and strengthened as

part of the works and, as described above, would provide the opportunity to offer improved

accommodation for retail, leisure and business uses alternative to the current sub-optimal uses.

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The area to the north of the station offers the greatest potential for locating HS2 work sites. Whilst

this allocation would prevent redevelopment in the short term, it would ensure more viable areas are

not blighted. Moreover, the opportunity would then exist for HS2 to clear (and potentially remediate)

land for construction compounds and provide flood prevention works, thus assisting in the bringing

forward of sites once released from construction use. In the short to medium term, and subject to

relocation of the multi-storey car parks, fuller redevelopment of this area could occur, including

waterside development adjacent to both the River Don and the Sheffield and Tinsley Canal. This area

is near the Riverside Business District, so any development at this location should be sympathetic to

Sheffield City Council’s proposals for the area. Leisure and retail, office, or residential uses may be

appropriate.

In the medium term, there may be potential for development in the area west of the River Don,

between Derek Dooley Way, Wicker and Savile Street. Development at this location would benefit

from a western entrance to the HS2 station. It could also form part of the transformation of the River

Don proposed as part of the Riverside Business District development.

A Development Infrastructure Funding study should be carried out to identify a programme of

necessary or desirable connectivity and development infrastructure investments, with associated

costs, potential funding sources and preferred delivery mechanisms – those which are best delivered

by the public sector as enabling infrastructure, mainly in advance of any development partnership,

and those which are best delivered by the development partner as part of the property developments.

This development infrastructure may include, among other things, connectivity enhancements, local

roads, public spaces, utility infrastructure, education facilities, healthcare and community centres,

sports facilities, employment and skills training facilities. Consideration should be given to potential

interim land-uses as part of an interim land-use strategy for the wider area.

Significant additional public sector funding may be required for these complementary investments, as

enabling works that may be required to create the development opportunity and market confidence,

well before the appointment of a development partner. Potential funding sources may include

developer contributions (through CIL or other tariff), TIF, local authority prudential borrowing, central

government grant funding, EU funding (eg: European Regional Development Funds, JESSICA funds),

local authority bonds or PFI. Given the potential opportunity for pooling of significant public and

private sector land holdings at Victoria, a local asset-based vehicle may be recommended.

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5. Summary of Recommendations

The section below sets out the main LCR recommendations in respect of the current design of the new

HS2 station.

Station, Access & Interchange Design

a) As already noted, the principal issue affecting the design of the station is the fact that the

station and its facilities will span vertically over different levels. Careful consideration should

therefore be given to vertical permeability between street, concourse and platform levels. The

different levels may present design and commercial opportunities, such as the potential use of the

space beneath the Royal Victoria Hotel and the arches beneath the station and Victoria Station Road.

b) Consideration should be given to retaining the Royal Victoria Hotel, and the potential to

incorporate all or part of the ground floor of the hotel into the concourse of the new station should

be explored. A more linear station structure and forecourt may be appropriate if the hotel is retained.

Consideration should be given to the forecourt area in front of the hotel, as well as to improving the

access via Victoria Station Road.

c) Additional entrances at the western end (onto Wicker) and at the eastern end of the station

would provide opportunities to strengthen the relationship of the new HS2 station with developments

in the Riverside Business District and Victoria Quays. It may be possible to use one of the arches at

the eastern end of the station to provide an additional entrance at ground level. Additional entrances

may require duplication of facilities such as ticket barriers, escalators and lifts.

d) Access to the station should be reviewed, including any improvements that could be made to

the pedestrian route along Victoria Station Road. Provision of a new access across Derek Dooley Way

to link the station and Victoria Quays should also be considered.

e) The location of the drop-off/pick-up point and the car and taxi route should be reviewed. It

may be appropriate to relocate these to tie in with a possible eastern entrance. It may be possible to

create a drop-off/pick-up area on the north side of the station, connecting the station to any waterside

development north of the station.

f) Consideration should be given to the number of car parking spaces required. As this is a city

centre location fewer spaces may be required than at Meadowhall. It may be possible to reconfigure

the multi-storey car parks or relocate them from their proposed locations north of the station to allow

potential waterside development sites to be safeguarded.

g) The current station design appears to make no provision for international services. If there is

a case for providing international services in the future, passive provision should be incorporated in

the design so that this can be retrofitted.

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h) Once repaired and strengthened as part of the HS2 construction works, there may be potential

to use the arches beneath the station and beneath Victoria Station Road for retail and leisure, or for

workspace or business start-up.

j) Consideration should be given to a tram link or shuttle between the new HS2 Sheffield Victoria

Station and the existing Sheffield Midland Station to provide a fast, reliable and good quality link

between HS2 services and national and regional rail connections. This would be part of a wider,

comprehensive, feasibility study to evaluate all link options and interchange facilities.

k) The pedestrian route between the new HS2 Sheffield Victoria Station and the Heart of the City

Quarter should be reviewed to provide an appropriate and secure walking route with suitable

wayfinding and permeability. In particular, consideration should be given to providing a suitable

pedestrian route across Derek Dooley Way. At the same time, improvements to the public realm as a

whole should be considered to aid development and delivery.

Property

l) The new HS2 station has the potential to be a landmark station and transport hub that will be

the catalyst for regeneration in Sheffield and the region, linking Wicker/Riverside and wider Riverside

Business District, Castlegate, Victoria Quays and the Steel Route. Most of the HS2 construction sites

will be in close proximity to the station and the trace, allowing development and regeneration in the

Riverside Business District to be brought forward in advance of HS2.

m) Land immediately to the north of the new HS2 Sheffield Victoria Station, fronting the River

Don and the Sheffield and Tinsley Canal, is likely to be used for construction. Consideration should

be given to safeguarding this area for development and regeneration post construction of the new

HS2 station.

n) There may be an opportunity for mitigation of HS2 property compensation costs by acquiring

some of the key landholdings early. We would encourage entering into an early dialogue with

landowners and stakeholders.

Development & Delivery

o) HS2 has the potential to be the catalyst for development adjacent to the new station. HS2

should work closely with SCC and other stakeholders to develop a wider development framework for

the new station and the surrounding lands to provide clarity on HS2 requirements both during

construction and permanently.

p) A Development Infrastructure Funding study should be carried out to identify a programme

of necessary or desirable connectivity and development infrastructure investments, with associated

costs, potential funding sources and preferred delivery mechanisms – those which are best delivered

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by the public sector as enabling infrastructure, mainly in advance of any development partnership,

and those which are best delivered by the development partner as part of the property developments.

q) If an HS2 specific regeneration company (‘RegenCo’) is established, it should consider the

potential for involvement in regeneration at the new HS2 Sheffield Victoria Station should this station

site be selected.

r) RegenCo should seek to influence HS2 design and construction to ensure regeneration

requirements dovetail with HS2 requirements.

Economic Benefits

s) A programme should be jointly establish for the funding and phased delivery of all the

transport and land-use developments, in a manner that assures maximum economic growth.

t) This should also provide for interim land-uses and activities with the aim of maintaining the

best possible social and economic fabric of the Sheffield Victoria Station area and wider Sheffield city

centre area prior to construction. A broad programme of social and economic initiatives should be

established to ensure early benefits are realised from the HS2 proposals.

u) It should also include an appropriate skills and training programme, designed to support the

longer term economic growth in the region, and to ensure that maximum social benefits are realised

by providing local people with a range of skills that will be required to accommodate the economic

growth. Opportunities should be explored for collaboration with local industries, especially major

employers or industry clusters.

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6. Conclusions

LCR has not reviewed the overall case for and against an HS2 station at Victoria, as opposed to the

currently proposed location at Meadowhall. It is understood that there are considerable additional

costs associated with a city centre route as well as journey time penalties, and analysis of these – or

comparison against potential additional benefits achieved – has been studied in a number of previous

reports, and is not the subject of this review.

It is, however, LCRs firm view that the regeneration opportunities at Sheffield Victoria are highly

significant, due to a number of locational factors – all generally deriving from the fact that the

proposed site is very close to both an established major city centre with recent regeneration

successes, as well as to areas of notable deprivation and existing dereliction. The ability of this location

to respond to, and accommodate the anticipated growth derived as a result of HS2 is very strong,

given the availability of sites, existing and possible connectivity and the potential to create high quality

spaces and places.

The latent opportunity for economic success is, thus, high – more so, in LCR’s view, than a number of

other HS2 station sites across Phase 1 and 2. Indeed, were a ‘RegenCo’ to be established and Sheffield

Victoria to be chosen as a station site, it is very likely that it would represent a high priority for

intervention, on the basis that significant benefits could accrue from investment.

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Appendix 1: Sheffield Local Plan: Pre-Submission Proposals Map

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Appendix 2: Sheffield City Council Land Ownership Plan