Part Two: Centres and Site Allocations (Regulation 19)

2. Dudley

Introduction

2.1 This chapter sets out how Dudley Town Centre will develop and change over the plan period. A vision for the town centre is set out, which will be delivered through the Local Plan policies and site allocations (up to 2041).             

2.2 Dudley Town Centre lies within Regeneration Corridor 2 which covers Dudley, Brierley Hill and Stourbridge, following the proposed new Metro line route. This new rapid transit network will provide first class access to the rest of the Black Country and to Birmingham. The Local Plan expects that development in this corridor will include high quality housing development in the centres and along the corridor. It is also intended that the corridor will have an excellent green infrastructure network through enhanced green spaces and parks as well as increased biodiversity and improved links into such areas as Wrens Nest National Nature Reserve. The town will be a key place to work and invest in. Its regeneration will reinforce and reinvent a sense of place and local identity. Dudley town will have a tourism focus of regional and national repute.

2.3 In October 2023 Dudley was named as one of 55 local authorities to receive £20million of government funding over ten years under the Long-Term Plan for Towns Initiative. Initial planning is underway for how the funding will be invested. The Long-Term Plan for Towns will require the Dudley Town Board to develop its own plan for the town, aligned to three key themes for investment- safety and security; high streets, heritage and regeneration; transport and connectivity.

The Dudley Town Centre Inset Plan Boundary

2.4 This inset chapter covers Dudley's Town Centre and its Conservation Area and encompasses the Castle Hill area and its Conservation Area, which includes Dudley Castle and Zoo; The Black Country Living Museum; the Dudley Canal Trust and Priory Hall and Park to the west of the Castle. A wider area than the designated town centre boundary has been identified to capture the special landscape and historic character of the area. The Castle Hill area has a globally unique cluster of heritage attributes that ensure this area's future profile and success in the visitor economy. It is therefore of great importance to ensure they are connected physically to the town centre.

2.5 Castlegate Park (out of town retail and business park) lies just outside the Inset Plan boundary (to the east of the Castle Hill area) and offers a range of leisure, office and hotel facilities. Whilst it lies outside the Inset Plan boundary the improvement of links and connectivity between Castlegate and the town centre is encouraged, particularly with the forthcoming Metro stops that will be located in this area alongside the A4037.

Key Features of Dudley Town Centre Inset Plan Area

2.6 Large parts of the inset plan area fall within the Dudley Town Centre and the Castle Hill Conservation Areas. There are three Scheduled Monuments (SMs) and the Priory Park Registered Park and Garden. The town has benefited from recent investment in the restoration of historic buildings and the public realm (via the National Lottery Heritage Fund). Further information on heritage assets is provided in the Historic Environment policy section below.

2.7 The town of Dudley is a very special and unique place in terms of geology. Just outside the Inset Plan area is the UK's first National Nature Reserve for geology (Wrens Nest NNR). Most of the towns' historic buildings take their appearance from the hard pale limestone of Dudley and its cobbled stones in older byways come from nearby hills. This geology has given the town a very distinctive character of hills and valleys. The topography has clearly influenced the physical layout and historical development of the town centre. This is described in detail in the Dudley Urban Historic Landscape Characterisation study (UHLC) and in the Conservation Area Character Appraisals for Dudley Town Centre and Castle Hill.

2.8 Closely located to Dudley Town Centre is Castle Hill Woodland, which is a Site of Importance for Nature Conservation (SINC) for both its geological and nature conservation value. This site and the immediately adjacent Peggy's Meadow Site of Local Importance for Nature Conservation (SLINC) provide an important natural green space and wildlife corridor linking into nearby Wrens Nest NNR.

2.9 The town is home to a 'learning quarter' focused on the modern Dudley College facilities within the centre. The Very Light Rail Innovation Centre adjacent to the Castle Hill area provides a unique research facility alongside the new Black Country and Marches Institute (to address regional Science, Technology, Engineering and Maths (STEM) skills shortages). With a new Higher Education complex at the former Hippodrome site to be completed, the Castle Hill area will also be a key learning hub for the town.

2.10 Dudley Castle, together with Dudley Zoo, the Black Country Living Museum and the Canal Trust, Town Hall and their connections to adjacent attractions and amenities including Wrens Nest NNR, define Dudley as a key tourism/visitor centre. These attractions, in connection with the other 40 or so geologically significant sites across the Black Country form the core of the Black Country Global Geopark. This designation aims to raise the profile of the area's visitor economy to help to support and underpin those very aspects that make Dudley and other areas of the Black Country unique.

2.11 The Castle Hill redevelopment scheme (being undertaken in Phases) has already delivered new visitor infrastructure to Dudley Zoo, The Black Country Living Museum, Dudley Archives and Dudley Canal Trust and the intention is for this to continue with future phases (see further information below under 'Dudley Town Centre and Surrounding Areas- Preferred Uses').

2.12 There are three public parks within the Dudley Town Centre inset plan area which offer different landscape characteristics: these are Priory Park, Coronation Gardens and Inhedge Gardens. Priory Park contains the medieval Priory of St James (a Scheduled Monument and Grade I Listed Building) and Priory Hall (Grade II Listed Building). The park was added to the National Register of Parks and Gardens in 2002 and restoration work via Heritage Lottery Funding has been undertaken in recent years. Coronation Gardensprovide an attractive formal green space reflecting the civic focus (outside the Council House) and contain the Apollo fountain and Dudley War Memorial. Inhedge Gardens(also known as Horseley Gardens) formed part of large houses with ancillary buildings, which were joined up as part of Horseley House by 1904. This links into the Opportunity Site at the Trident Centre and improvements here would greatly enhance this part of the town.

2.13 Formal sports and leisure provision is available at Priory Park (pitches), the newly completed Duncan Edwards Leisure Centre, and the indoor sports hall on Tower Street constructed as part of Dudley College Evolve Building.

2.14 Dudley town centre has no direct access to the rail network, however, the forthcoming new Metro line will significantly enhance the connectivity of the town centre to the wider Black Country and Birmingham area as well as within the town centre area itself i.e., stops throughout the town and associated pedestrian/public realm connection improvements. Alongside this, the redeveloped bus station will provide a modern transport interchange, enhancing capacity and the experience of sustainable transport into the town centre.

2.15 Retailing remains an important function of the town, including the outdoor market. Reflecting national trends for town centre retail its role has however declined in recent years. It will be important for a wider range of town centre uses and residential developments to come forward to contribute to the town's vitality and viability.

Vision and Objectives Comment

2.16 The following specific objectives for Dudley Town Centre are identified:

1. To support and encourage investment within the town centre by building on the success of recent development projects; the refurbishment and renewal of town centre buildings and the public realm; and maximising the benefits of the forthcoming Metro links and new transport interchange.
2. To continue to develop Dudley as a tourism and leisure destination, utilising its historic assets and integrating the Castle Hill area into the town centre.
3. To continue to develop Dudley's educational offer, providing access to higher education opportunities whilst helping to stimulate activity within the town centre and raising its profile.
4. To encourage and facilitate further residential development within the town centre to help stimulate activity both during the day and in the evening and support the growth of a vibrant community.
5. To ensure that the special character and quality of Dudley's historic environment is fully appreciated and that this is exploited to its best advantage.
6. To protect and improve access to Dudley's unique landscape and natural assets including the Castle grounds and surrounding areas and beyond to the Wrens Nest National Nature Reserve.
7. To provide, protect and enhance a well-connected landscape and public realm setting of streets, routes and public spaces that is attractive, safe, lively, and pleasant to use.
8. To ensure the delivery of high quality and innovative design that respects and enhances the unique features of Dudley town centre.

Policies

Dudley Town Centre and Surrounding Areas – Preferred Uses

Town Centre and Town Centre Core Area

2.17 Policy DLP24 sets out the general approach to town centre development within the borough, including appropriate uses. This section elaborates on this by providing specific policies relevant to Dudley Town Centre.

Justification

2.18 The town centre (as defined by the town centre boundary) will remain an important focus for day-to-day shopping and a range of other town centre uses such as offices, leisure and cultural facilities. As recognised in the Local Plan, in view of the changing nature of town centres, there is a need for them to diversify in terms of uses that promote their vitality and viability; residential developments will have an increasingly important role alongside leisure and entertainment uses.              

2.19 Retailing in the town is dominated by independent retailers with a small number of national multiples, many of which are discount orientated. There are two shopping centres in the town, namely the Churchill Shopping Centre and the Trident Centre, as well as the Fountain Arcade shopping arcade. There is a popular permanent outdoor market on the High Street which has been redeveloped and enhanced. The Plaza Mall Indoor Market is located centrally on the High Street as well as smaller retail units between the Market Place and Tower Street. There is now only one foodstore within the town centre, the Asda store at the top of the High Street. There are a selection of food and drink establishments, the offer of which has improved in recent years (e.g., around Stone Street). A range of services including several high street banks and the post office continue to operate in the town.              

2.20 The supporting evidence to the Local Plan identifies there is no quantitative need for additional retail, leisure and office floorspace. It does identify a qualitative need for an anchor foodstore within Dudley Town Centre, but there are no timescales for this other than up to the end of the plan period (and there have not been any specific proposals put forward as part of the Local Plan process). The emphasis therefore is on the consolidation of core areas and the diversification of uses on development sites to enable the repurposing of town centres, taking account of the most up to date information available on needs at the time of any specific proposals. In relation to the qualitative need for an anchor foodstore, the Council will work proactively with landowners and developers to seek to meet this need, including consideration of the potential for repurposing existing floorspace within the town centre and the town centre Opportunity Sites (where appropriate).

2.21 Alongside this, the recent changes to the Use Class Order (wherein retail uses now lie within the same 'E' Use Class as other uses, including food and drink or offices) mean that retail uses are now able to change more freely to other uses (i.e., without the need for planning permission). Whilst this enables town centres to become more flexible and responsive to changes, it does mean that it is now more difficult to manage the loss of retail and some other more traditional town centre uses.              

2.22 Nevertheless, in line with national planning policy it remains important to identify the Town Centre Core Area for the key purpose of identifying whether a retail development proposal represents edge of or out of centre. It is recognised that there is likely to be a diversification of uses within the Town Centre Core Area, however, any new proposals for retail development will still be directed towards it in the first instance.

2.23 Dudley town centre has a particular function as a heritage and leisure focus for regeneration and this can be enhanced further via new developments and initiatives (see Figure 2.1 below). These include the implementation of the 'Castle Hill Vision' (2019) (Phases 1 and 2 already underway or completed) or the reintroduction of leisure and tourism uses by the appropriate repurposing of vacant premises, such as the Museum and Art Gallery at Priory Street/Stone Street. Associated uses, including food and drink provision and visitor accommodation will also complement this focus, with the potential to create clear 'quarters' for leisure and entertainment in the town e.g., Stone Square which contains existing food and drink provision and has been earmarked for additional visitor accommodation.

2.24 Vacant office buildings offer an opportunity to be repurposed considering changes to the town centre office market. Some former large-scale offices in the town centre have already been converted for residential use (Falcon House) or have been demolished (Cavendish House) for alternative uses.

2.25 The proposals for the individual Priority and Opportunity Sites reflect the overarching policy for the town centre, with preferred uses identified for each site (see Priority and Opportunity Site policies).

2.26 In addition to the housing provision at the Priority and Opportunity Sites, several housing allocations are identified within the plan area. There is a concentration of these along Wolverhampton Street, which offers the opportunity for a 'corridor' of potential change towards residential development that could serve to help regenerate this part of the town centre.

Figure 2.1: Dudley Town Tourism and Visitor Attractions

Areas outside the Town Centre Boundary

Castle Hill

2.27 The Castle Hill area is primarily that covered by the Castle Hill Conservation Area and its immediate surrounds. It represents a vital hub for the towns leisure and tourism facilities, as well as education and training opportunities. Whilst the southern part of the area (including Dudley Castle and Zoo) lies within the town centre boundary, the northern part of the site (primarily occupied by the woodland area) lies outside the town centre boundary.

Justification

2.28 A 'Castle Hill Vision' (2019) has been prepared to guide the future development of this area. The Vision identifies several projects related to improvements and investments to the Dudley Zoo and Castle and Castle Hill Woodland. It represents a collaboration between the zoo, the council and other stakeholders and is being implemented in phases.              

2.29 The first phase of the Castle Hill Vision included a new zoo entrance, a new access road off Tipton Road and the expansion of the existing zoo car park. Phase two includes proposals to transform the four tecton buildings and create a new mixed-use facility which could be used for activities, training and education, meetings and conferences. Part of the vision also includes a new university centre (Health Innovation Dudley) to expand the town's learning quarter, which will be on the site of the former Hippodrome (at the foot of Castle Hill).              

2.30 The Dudley Town Centre Area Action Plan (2017) identified Opportunity Site (7- Castle Hill), which lies directly to the east of the Castle Hill Conservation Area. This has been the subject of recent developments including the Very Light Rail Innovation Centre and the Black Country and the Marches Institute of Technology. The forthcoming Metro line will cross the A4037, to the east of Castle Hill. To the northeast, the Castle Hill areas' links to the Black Country Living Museum, Dudley Archives and Dudley Canal Trust are also important and have been the subject of improvements in recent years.

2.31 The continued implementation of the Castle Hill Vision will serve to enhance the visitor experience to the town centre, including its surrounding attractions. The projects which are likely to be the focus of work going forward include improvements to the Castle Hill woodland and its connections to the town, surrounding attractions and Wrens Nest NNR.

Design and Public Realm

Design

2.32 Policies DLP4 and DLP39 provide the overarching context for considering design quality. Regard should also be had to DLP policies for the historic environment. This section sets out those characteristics of the most importance to the Dudley Town Centre inset plan area and town centre specific policies.

Justification

2.33 Dudley Town Centre has a distinguished heritage as a planned medieval market town set out along a limestone ridge with distinctive landmarks that can be identified from distant views e.g., the spire of St Thomas's (Top) Church at the western end of the town and the remains of Dudley Castle to the east. On each side of the linear connection of High Street, Market Place and Castle Street connecting these landmarks, lies the streets, lanes and alleyways whose course has altered little since their medieval layout. The medieval town layout is centred on the Market Place, with a strong connection to the Castle and the buildings contained along the street that connects Top (St Thomas') and Bottom (St Edmund's) Church, namely the Historic Central Spine.              

2.34 Whilst the remains of the medieval buildings have substantially changed, the patterns of connection, burgage plot and the topography of the town is clear in many places and provides a structure to both respect and inspire new development.

2.35 Dudley town centre has a prominent skyline and roofscape, accentuated by the topography and defined by bold built form such as the spire of Top Church and the tower of Bottom Church, and the memorial tower on the town hall. The castle provides a unique backdrop and outlook from many viewpoints in and around the town centre. It was intended to always be conspicuous from the time of its construction in the 11^th century with its tower positioned to dominate Dudley, enabling it to control the approaches to the town. Historic paintings and drawings of Dudley from the early 19^th century onwards always depict the topographical dominance of Dudley Castle, Top Church and Bottom Church and it is this 'historic view' that has managed to be maintained to the present day. These features are not only significant historic landmarks but are also of huge communal value as they help people to navigate or identity with a particular location.             

2.36 Some aspects of the current built form (e.g., those areas backing onto some parts of the town) are however weak, especially where servicing areas face the street. There is also a lack of prominent built form to address the gateways of the town centre, arrival points and visitor attractions. Good urban design at these entry points is particularly important in providing first impressions of the town.

2.37 Improving the sense of arrival and the way people move and find their way around the town centre is important as it reinforces a sense of place and creates better connections to other distinctive places and heritage assets. Significant to the Dudley Town Centre Inset Plan area are its unique historic and environmental assets and its tourism role, therefore, it is essential that these components are connected to ensure residents and visitors can navigate their way from place to place effectively.             

2.38 Views and landmarks within Dudley help people find their way around and add variety and interest to the townscape that reinforces its sense of place and gives local identity. When buildings are designed poorly, or when they are out of scale or sited within particular sight lines, it can have a detrimental impact on the quality of the view and amenity it offers to local people and visitors. The Dudley Urban Historic Landscape Characterisation (UHLC) and the Conservation Area Character Appraisals for Dudley Town Centre and Castle Hill are of direct relevance when considering views, landmarks and vistas into, out of and within the boundary of the two Conservation Areas or that could affect their setting.

2.39 Managing change in the town will be carried out at different scales from very small-scale opportunities to larger projects. In all cases attention to scale, mass, height, building form, building frontage, roofscape, impact on skyline, views and vistas will need to be taken into account and considered within the context of the whole landscape to ensure that development complements the many areas of good built structure and overall townscape character.

2.40 The DLP references the intention to produce a borough-wide design code. This design code will need to reflect the special features of Dudley town centre, taking into account the existing Dudley town specific design related policies and their supporting evidence base.

Figure 2.2: Dudley Town Landmarks, Views, Vistas and Gateways Plan

Public Realm

2.41 The town's character is greatly influenced by its public realm, with some locations in need of upgrading. Public open spaces provide a focus for community activity and form connections within the town centre.

Justification

2.42 'Public realm' can be defined as all areas that the public have access to including streets, squares and open spaces. It is considered necessary to introduce greenery into the towns' urban environment and resolve the competing needs of vehicles and pedestrians moving through the town centre. The quality of the public realm encountered, along with signage and legibility for visitors to understand and enjoy, is an important part in the role of the town centre.

2.43 Key design principles for the public realm include:

1. Quality of the Public Realm: increase the adaptability of spaces for future use; create legible spaces and routes that add to the 'sense of place' of an area; relate public spaces to surrounding buildings and vice-versa; and improve continuity and enclosure.
2. Active Frontages: a common building line creates continuity of frontage and provides definition and enclosure to the public realm. Minimising set back distances increases the ability of a building to interact with the public realm. In the Town Centre buildings should be built adjacent to the pavement.

2.44 Passive, active, and incidental open spaces play a significant role in urban design. These different types of open spaces within Dudley Town centre are crucial for creating liveable and vibrant communities. Passive spaces offer moments of tranquillity and respite, active spaces promote physical well-being and social interaction, and incidental spaces provide opportunities for leisure and engagement. Improving pedestrian links in Dudley town centre should take account of safety, accessibility, aesthetics, and the overall urban experience.

2.45 Within the town centre, the Market Place forms a key central focus and major area of public realm which has been renewed through a high-quality public realm landscape project. New paving, brand new stalls, canopies, feature lighting and new street furniture, as well as the relocation of the Duncan Edwards Statue to a more prominent place at the New Street end of the market, creates a vibrant and attractive space at the heart of the town centre.

2.46 Significant development projects, such as the campus buildings of Dudley College, have provided quality public realm. Stone Street and its connections via Priory Street and St James's Road is a significant public space for Dudley. Wherever there is likely to be a concentration of people, major public spaces make a vital contribution to the structure of a town centre. Protection and enhancement of key squares and public open spaces within Dudley Town Centre is important to enhance activity and require high quality landscape treatment.              

2.47 At Castle Hill the public realm has undergone major investment and improvements. This assists in the development of the visitor economy and in particular an expansion in visitor numbers at the Zoological Gardens, The Black Country Living Museum and The Dudley Canal Trust as well as facilitating the development and regeneration of Dudley Town Centre as a centre for entertainment, leisure and recreation.              

2.48 There is the potential for the creation of new, high quality public realm in the town centre, particularly associated with the forthcoming Metro line and the individual Priority and Opportunity Sites. Where opportunities present themselves, the development of new 'pocket parks' should be encouraged for people to relax and enjoy the town centre.

Figure 2.3: Dudley Town Legibility and Public Realm Plan

Historic Environment

2.49 The historic environment and heritage assets are to be protected, conserved and enhanced as per Policies DLP55-DLP62. This section sets out those characteristics of the most importance to the Dudley Town Centre inset plan area and town centre specific policies.

Justification

2.50 The town of Dudley grew up around the foot of the castle and from the early medieval period up to the Civil War, Dudley changed little. In the 17^th Century, Dudley saw a steady expansion due to the growth of coal mining and iron working. The largest expansion of Dudley as a settlement is however mainly attributed to the 18^th and 19^th centuries during the Black Country's industrial heyday. Throughout this period of rapid expansion, Dudley kept its image as a bustling market town and today the marketplace is still a busy focal point located at the heart of the town centre.

2.51 Perhaps the most important aspect of Dudley's townscape lies in the survival of both the pattern of medieval streets and 'entries' and key landmarks such as the Castle and Zoo, Dudley Priory, the two town churches (both Grade II* listed) and the public monuments such as the Grade II* listed drinking fountain located in the centre of the Market Place.

2.52 Accordingly, the Dudley Urban Historic Landscape Characterisation (UHLC) and Conservation Area Character Appraisals for Castle Hill and Dudley Town Centre have been prepared and provide an up-to-date evidence base for managing the planning of the town centre from a historic perspective.

2.53 The historic importance of Dudley Town Centre is recognised as a major asset in delivering regeneration and enhancing the town centre as a tourist destination. Large parts of the inset plan area fall within either the Dudley Town Centre Conservation Area or the Castle Hill Conservation Area. In addition, there are three Scheduled Monuments (SMs) and the Priory Park (Registered Park and Garden).

2.54 Listed buildings, Conservation Areas and all other presently known sites of archaeological or historic interest in Dudley are recorded in detail within the Historic Buildings Sites and Monuments Record (HBSMR) held by the Council. Developers should always consult the Dudley HBSMR at the earliest possible planning stage and before considering any proposals for development which could adversely affect sites of archaeological or historic significance.

2.55 The UHLC provides the evidence base to inform an understanding of the town's historic character. This evidence should be used in considering how new development proposals and the enhancement of existing townscapes and landscapes should respect Dudley's character.

2.56 The study describes the historical development of Dudley and identifies eighteen Historic Townscape Character Zones within the Town Centre and beyond (see plan below). For each Character Zone, individual buildings and spaces have been identified, which contribute positively or otherwise to local character. Where physical evidence of historic character persists in the form of assets that make a positive contribution to local distinctiveness, such assets should be conserved and wherever possible enhanced. Locally significant areas of high historic townscape and landscape value have been identified alongside individual heritage assets of varying significance, including Archaeological Priority Areas.

2.57 In Dudley, it is considered that the whole extent of the medieval planned town should be an Archaeological Priority Area (APA) as identified on the Policies Map (and see Policy DLP62). In addition, there are also some specific sites associated with the glass industry such as the 18^th century remains of the cone belonging to the former Dudley Flint Glass Works, now located below Stone Street Square, that are also worthy of their own status as an APA.

2.58 The town centre has a high potential for the presence of significant archaeological remains dating from its medieval origins in the 12^th century right through its development during early modern periods to its growth and expansion during the Industrial revolution. Dudley Council's Historic Environment Record (HER) records sites in the inset plan area as having high potential for the survival of archaeological remains of regional or national importance but have yet to be designated. Dudley Council will consider the preservation of such archaeological remains when assessing planning applications, as well as identifying opportunities to make greater use of the archaeological resource in sustaining the area's character and distinctiveness.

2.59 Areas of High Historic Townscape Value (AHHTV) have been identified through the Dudley Borough wide UHLC on the periphery of the inset plan boundary within residential areas around Priory and Wrens Nest, Churchfield Street, West Dudley, Blowers Green and Kate's Hill (as identified on the Policies Map and in Policy DLP59). The borough wide UHLC indicated that these areas exhibit a concentration of historic assets that make a positive contribution to local character and distinctiveness. As these areas represent historic settlement and suburban growth outside the town centre, it is important that routes are enhanced to these areas connecting with the town centre and new development.

Figure 2.4: Dudley Town UHLC Boundary and Character Zones

2.60 Dudley Town Centre was designated as a Conservation Area in 2005. An updated Conservation Area Appraisal was adopted in 2015 and a Conservation Area Management Plan was adopted in 2017.

2.61 A Townscape Heritage Initiative scheme (THI) for the Dudley Town Centre Conservation Area has been in operation since 2008 (funded by the National Lottery Heritage Fund). Phase 1 of the scheme (2009-2015) saw an investment of £4million towards the repair and reuse of 17 properties such as The Crown Public House, the Old Co-op, Baylies Hall and the Old Glass House (which in 2017 received a finalists Award from the RTPI National Award for Excellence). Phase 2 of the scheme has funded repairs to several other buildings, including Plaza Malls and Fountain Arcade and 203/204 Wolverhampton Street (the former Merlin's Bar).

2.62 In combination with other strategic regeneration initiatives, such as the public realm work in Stone Street, Coronation Gardens, Castle Street and the Market Place, plus the work undertaken by Dudley College with the creation of the town centre campus, they have collectively led to a demonstrable improvement in the quality of the Town Centre Conservation Area. There are however elements within the Conservation Area that do not preserve or enhance the character and appearance of the Conservation Area. These have been identified in the Conservation Area Character Appraisal.

2.63 The Dudley Town Centre Conservation Area Appraisal sets out the historic development of the Conservation Area and highlights those elements of the built or natural environment that contribute to its character and appearance. It also sets out the issues that currently have a negative impact on the Conservation Area and which need to be addressed. The Appraisal identified eight-character areas, each with their own individual and definable character which collectively creates a sense of place within the Dudley Town Centre Conservation Area.

2.64 The Town Centre Conservation Area reflects the medieval extent of the town and includes the marketplace and the 18^th and 19^th century expansion to the north including the civic quarter, St James's Road and Ednam Road high quality housing. The relationship with the castle can still be appreciated in views from the town centre, although addressing connectivity between the two is a key objective. Buildings range in date from the 18th century to the present day and vary widely in style. Located throughout the Dudley Town Centre Conservation Area are a number of statutorily listed, locally listed buildings and non-listed historic buildings which have heritage value.

Justification

2.65 Castle Hill Conservation Area is an important area of townscape and landscape: an area of high historical, archaeological, geological, ecological, landscape, tourist and leisure value. It is primarily an area of open space and woodland stretching north to south and is located upon a large outcrop of Much Wenlock Limestone Formation strata deposited in the Silurian Period some 428 to 429 million years ago. The hill is a prominent geomorphological feature and icon of Dudley and the borough. The north of the Castle Hill is woodland which contains rock face exposures and ravines and provides a potentially valuable recreational resource as well as evidence of the Earl of Dudley's network of carriage drives developed over the earlier mineral railways associated with the late 18^th century limestone workings. It is the starting point for the borough's 'Limestone Way' which starts at Castle Hill and runs to Wren's Nest National Nature Reserve and Sedgley Beacon. It is also where Dudley Canal Trust provides access to the 18^th century canal system which runs under Castle Hill.

2.66 The imposing ruins and earthworks of the medieval castle, a Scheduled Ancient Monument and Grade I Listed Structure dominate the southern end of the hill, which is surrounded by the landscape and buildings of Dudley Zoological Gardens. This contains the listed collection of early 20^th century Zoo buildings by the Tecton Partnership. The geological interest of Castle Hill is internationally renowned and there is a unique legacy of a well-preserved limestone quarrying landscape of national significance, designated a Scheduled Ancient Monument in 2004. It displays evidence of both surface and underground limestone working with associated canals, limekilns, caverns and other structures dating from the late medieval period throughout the Industrial Revolution until the modern era. Additionally, the hill possesses a wealth of important ecological features.

2.67 The area of Castle Hill has been the subject of a 'Vision' (as outlined above) which have brought about a range of improvements to the Conservation Area; future developments associated with the Vision will need to continue to protect and enhance its historic features.

2.68 The Dudley Urban Historic Landscape Characterisation (UHLC) and the Castle Hill Conservation Area Appraisal (2015), in conjunction with the design information held in Dudley Council's Historic Environment Record (HER), should be used to inform proposals for future development and enhancement. The purpose of the following policy is to ensure the protection and enhancement of the very special and diverse components of Castle Hill so that they can co-exist without detriment to each other.

Sustainable Transport and Active Travel

2.69 Policies DLP67-DLP74 provide the strategic transport policies for the Borough. This section sets out key priorities for the Dudley Town Centre inset plan area.

Justification

2.70 Dudley is a significant centre in the Black Country for a range of leisure, tourism and employment opportunities but further growth requires improvements to public transport, cycling and walking networks whilst facilitating opportunities for emerging innovations i.e., micro-mobility (small vehicles such as electric scooters).

2.71 The existing Dudley bus station is being redeveloped to provide a modern transport interchange, aligned to the forthcoming Metro line and stops. This is conveniently located adjoining the Town Centre Core Area alongside Fisher Street and its redevelopment will improve customer experience, improve operational efficiency, and provide a high quality, modern gateway into Dudley Town Centre. It is expected to be completed by Spring 2025.

2.72 Given that Dudley Town Centre has no direct access to the national rail network (with Dudley Port Station being approximately 2 miles away) the forthcoming Metro will have a key role in enhancing the accessibility for people travelling to and from Dudley Town Centre. In Dudley borough, the proposed Metro line provides a link from Castle Hill up into the Town Centre, adjacent to the bus station. The route then continues at street level along King Street and down Flood Street, and then continues west towards Brierley Hill. The Metro will also provide the borough with a connection to the national rail network at Wednesbury.

2.73 The Metro is under construction, with parts of the scheme at Castle Hill and Flood Street well under way and near completion. It is expected that passenger services will commence at the end of 2024.

2.74 There is a need to continue to safeguard the route as it remains under development and to enable future development sites within the town centre to reflect and complement the new Metro line, supporting economic regeneration and growth.

2.75 Effective management of the Key Route Network (KRN) and its links to the Strategic Road Network (SRN) are integral in supporting increased investment and regeneration in and around Dudley Town Centre. Maintaining and improving the efficiency of the local road network will benefit commuters, visitors and public transport users by reducing congestion and providing more reliable journey times into and out of Dudley. Major Network Scheme improvements, including those to Burnt Tree junction are part of this management.

2.76 The potential introduction of a 20mph zone covering the retail core of the Town Centre would align with national policy which places vulnerable road users at the top of the hierarchy by providing safer and enhanced environments for pedestrians. Furthermore, complementary traffic management measures, including improved pedestrian crossing facilities along primary thoroughfares would be incorporated into this 20mph zone scheme.

2.77 Dudley Town Centre sits alongside the Sustrans National Cycle Network (NCN) Route 54 (Derby to Stourport), which links to Brierley Hill and Stourbridge to the southwest and NCN Route 81 (Aberystwyth to West Bromwich) to the northeast. NCN 81 links to both Coseley and Wolverhampton to the north and Birmingham to the south. In the Dudley central area the route of NCN54 is not currently well established, and it is therefore proposed to consider the most suitable route that will both clearly define the route of the NCN and also provide good access directly into the Town Centre. As part of the active travel improvements at Trindle Road and the A461, cycleway links will be improved between the town centre and Castlegate Park.

2.78 Essentially a 'hub and spoke' ethos will be developed in Dudley Town Centre where placemaking efforts will be supported by a network of sustainable transport links to the Key Route Network (KRN), the Strategic Road Network (SRN) and the National Rail Network whilst also promoting accessibility to other local centres to raise Dudley's offer to its businesses, residents and visitors.

Figure 2.5: Dudley Town Transport and Movement Plan

Dudley Town Inset Plan Area Site Allocations

2.79 Dudley Town Inset Plan area contains two of the Borough's 'Priority Sites' at Flood Street/King Street and Trindle Road/Hall Street/Birdcage Walk (also known as 'Portersfield'). In addition, four 'Opportunity Sites' have been identified where redevelopment and regeneration would provide benefits to the town centre. These represent mixed use sites, including residential development. The opportunity sites do not preclude or diminish the importance of investment or change elsewhere within the centre. They simply reflect the Council's wish to prioritise use of its resources to kick start and progress projects which will have a significant regeneration impact and act as a catalyst for wider change.

2.80 In addition, there are several sites identified for residential development within the Inset Plan area. These are identified within Policy DLP10 as part of the overall housing land supply as summarised below.

Table 2.1: Summary of Dudley Town Allocations

2.81 A Policy is provided for each Priority and Opportunity site which identifies the acceptable uses. For the Priority Sites, key design principles are included within the policy; for the Opportunity Sites these are provided as part of the Local Plan evidence base. The design principles are based on an assessment of land use, access and movement, layout and form, scale and mass, character and appearance and landscape and public realm. They particularly reflect the heritage and character of Dudley and demonstrate how the ambitions for these sites could be developed in a way that respects good design principles. All of the Dudley Town Centre Priority and Opportunity Sites are either within or adjacent to the Dudley Town Centre Conservation Area. The Local Plan policies and evidence base related to historic character and heritage assets will inform the appropriate design of all development sites coming forward within the town centre (namely Policies DLPD3, DLPD5, DLPD6, DLPD7).

2.82 Several of the housing allocations outlined above are located along the Wolverhampton Street, creating a 'corridor' of change towards residential development that could serve to help regenerate this part of the town centre.

2.83 It is recognised that the residential capacity of DLP D PS2 (Trindle Road/Hall Street/Birdcage Walk) may vary dependent on the nature of developments to be delivered across the site parcels e.g., the mix of apartments and houses. This could result in a range of circa 300-400 dwellings being delivered, and the 330 dwellings is identified as an indicative figure which is not a cap.

Dudley Town Centre Opportunity Site 1: Tower Street/Castle Street

2.84 This opportunity site is centrally located in the historic core of the Dudley Town Conservation Area to the north of the Market Place and is focused on Tower Street and Castle Street. The area is partly comprised of surface level car parking. The buildings fronting Castle Street are currently occupied by a range of town centre uses, including the Dudley Council Plus services. To the west of the site on the opposite side of Tower Street, is the locally listed former fire Station which now forms part of the Dudley College Evolve building. To the north of the site is the Grade II Listed Baylies Hall. To the south of the site is the 1930s Court House Public House designed by A T Butler and to the east of the site is Castle Street. The site is in close proximity to the forthcoming new Interchange and Metro stop at Fisher Street.

2.85 The part of the site fronting onto Castle Street is within the Town Centre Core Area, offering the potential for uses that continue to provide an active frontage at the ground floor. The part of the site fronting onto Tower Street offers the opportunity for other town centre uses. The site has good links to the nearby forthcoming Interchange and Metro stop. Residential development could come forward as part of any mixed-use redevelopment scheme (in accordance with Policy DLP24). Dependent upon the nature of individual development proposals, the impact upon public car parking may require consideration . Any loss of parking could affect the attractiveness of the town to investors and an element of parking will therefore need to be re-provided for within the redevelopment of this site.

2.86 Consideration needs to be given to the impact of proposals within the opportunity site on the significance and setting of heritage assets both on-site and within the vicinity, including Dudley Castle. Heritage Statements and Design and Access Statements accompanying proposals will be required to make reference to the Dudley UHLC and the adopted Conservation Area Appraisals. The opportunity site is located within the Dudley Town Centre Conservation Area and is within close proximity of the Castle Hill Conservation Area therefore special attention will be given to preserving and enhancing the character and appearance of the conservation areas and key views into and out of them. Located at the end of Tower Street is a clearly defined/framed view of the 'Tower' of Dudley Castle, a Grade I Listed Building as well as a Scheduled Monument and this along with the Grade II* Listed St Edmunds Church will be of key consideration when assessing the impact of proposals on key views and skylines.

2.87 Being located within the core of the medieval planned town of Dudley, in an area identified within the Dudley UHLC as an Archaeological Priority Area (APA) there is a high potential for archaeological remains from the medieval period through to the Industrial period, accordingly the archaeological potential of the site will require detailed consideration. An archaeological desktop assessment and an archaeological evaluation have been undertaken on the site by the Council and whilst this information will be made available, it is anticipated that further assessment will be required.

Dudley Town Centre Development Opportunity Site 2: Trident Centre/Upper High Street

2.88 This opportunity site is located between Upper High Street, Wolverhampton Street and Inhedge Gardens (also known as Horseley Gardens). The area is focused on the Trident Centre, a purpose-built shopping precinct dating from the 1960s, the retail frontage along Upper High Street, and Inhedge Gardens which is one of the key areas of open space within the town centre.

2.89 The Trident Centre comprises a purpose-built covered shopping centre together with a parade of shops fronting High Street, basement public car park, roof deck private car park, loading areas and office accommodation. It is a substantial area containing retail units and the centre can be accessed via High Street towards St. Thomas's Church and Wolverhampton Street. The principal access to the shopping centre is from High Street.

2.90 There is potential for the upper floors of the existing Trident Centre to be converted into residential use and for a more attractive, active edge be created for the elevations that overlook the Inhedge Gardens. A large proportion of the site (represented by the Trident Centre) lies within the Town Centre Core Area and whilst retail uses currently dominate, there is potential for repurposing of the Trident Centre for other appropriate uses, including leisure and food and drink. Any redevelopments should continue to provide an active frontage onto the High Street.

2.91 Opportunities should be explored to provide the Old Meeting House with an enhanced setting with pedestrian access enhanced through and around the Inhedge by improving natural surveillance. Inhedge Gardens should be restored and enhanced by public realm improvements, including further landscaping. Also, the possibility of providing continuous linked Green Network e.g. Public Open Spaces, utilising the existing areas of public open space, in front of the Magistrates Court should be explored.

2.92 The opportunity site falls within the Dudley Town Centre Conservation Area and within the context of the Urban Historic Landscape Characterisation (UHLC) the opportunity site falls within two-character zones: Character Zone 8 (Dudley Historic Core) and Character Zone 13 (Stafford Street and Inhedge). The Dudley Town Centre Conservation Area Appraisal and the Dudley UHLC describe in detail this opportunity area identifying the issues and sensitivity to change, the key heritage assets to be considered and, more importantly, the potential opportunities and priorities for enhancement: full reference to this information will be expected when formulating proposals for this opportunity site and when preparing Heritage and Design and Access Statements.

2.93 Within this opportunity site and identified in the UHLC is the Medieval Planned Town Archaeological Priority Area (APA). Accordingly, the archaeological potential of the site will require detailed consideration.

Dudley Town Centre Opportunity Site 3: Upper High Street / King Street

2.94 This opportunity site forms the southwest 'Gateway' to Dudley Town Centre and is focused on the junction of High Street and King Street. The premises along High Street are a mix of town centre uses, with some vacant properties. Northgate House (fronting High Street with the rear extending to King Street) represents a modern development within a largely traditional street scene and offers the potential for some redevelopment. There is a motorcycle showroom on King Street (which appears to be in use for storage primarily) and some vacant properties.

2.95 The southwest Gateway area is an important approach into the town centre and redevelopment should enhance and strengthen the sense of arrival into Dudley. The site is located outside the Town Centre Core Area. There is an emphasis on the residential repurposing of the area, alongside appropriate main town centre uses at the ground floor level. A mix of retention and refurbishment of existing buildings together with selective redevelopment opportunities will be supported.

2.96 Being located within the Town Centre Conservation Area and given that there are several buildings recognised as Heritage Assets, the upgrading of buildings would have to be sensitive and responsive in terms of design. The views into and out from the town centre at this site could be enhanced and development adjacent to the Grade II* Listed St Thomas's church should be appropriate so as not to detract from the setting of the church and its surroundings. Within the context of the Urban Historic Landscape Characterisation (UHLC) this opportunity site falls within, Character Zone 8 (Dudley Historic Core). Full reference to this information will be expected when formulating proposals for this opportunity site and when preparing Heritage and Design and Access Statements.

2.97 New development should respect existing building lines, create good street enclosure and maintain a vertical rhythm that enhances the overall character of the area. With the approach of encouraging residential development in this site by 'living above the shop', small high quality amenity spaces could also be incorporated where appropriate.

2.98 Within this opportunity site and identified in the UHLC is the Medieval Planned Town Archaeological Priority Area (APA), accordingly the archaeological potential of the site will require detailed consideration. In 2007 the Council commissioned Worcestershire Archaeology Service to prepare a Desk-based Assessment and Building Recording of the South-West Gateway and this information will be made available to developers when assessing the potential development opportunities. It is however anticipated that further assessment will be required for site specific proposals.

Dudley Town Centre Opportunity Site 4: Abberley Street/King Street

2.99 This opportunity site also forms part of the southwest 'Gateway' into the town centre along with Opportunity Site 3 and is located between King Street and Abberley Street. It is currently a mixed-use area comprising of car parking area, a former training centre (occupied by a community use) and a range of other community and commercial uses. It is bounded by residential development to the south and west.

2.100 The site is located outside the Town Centre Core Area. Similar to Opportunity Site 3, there is potential for primarily residential redevelopment alongside any appropriate main town centre uses. Opportunities exist for a much stronger built form in this block along Abberley Street and King Street. Pedestrian linkages should be strengthened into the town centre and opportunities for walking and cycling should be encouraged.

2.101 A small part of the opportunity site falls within the Town Centre Conservation Area and within the context of the Urban Historic Landscape Characterisation this opportunity site falls within two Character Zones: Character Zone 9 (Dudley King Street and Prospect Hill) and Character Zone 18 (Churchfield Street, 19^th Century Residential Area.) There are a number of existing historic buildings within this block and some of the historic street patterns remain intact.

2.102 One of the gap sites requiring redevelopment is located on the corner of King Street and Vicar Street: the former 19th century burial ground belonging to St Thomas's Church. A previous desk-based assessment of the site was undertaken where it was concluded that further archaeological investigation would be required. With regards to the rest of the opportunity site it is anticipated that further archaeological assessment will be required for site specific proposals.

Evidence

• Responses to the BCP Draft Plan consultation (2021)
• Black Country Centres Study (2020, 2021, 2023 and subsequent updates)
• Black Country Historic Landscape Characterisation (2010)
• Black Country Historic Landscape Characterisation Study (2019)
• Borough-Wide Urban Historic Landscape Characterisation Study (2016/2023)
• Castle Hill Conservation Area Appraisal (2015)
• Castle Hill Vision (2019)
• Dudley Town Centre Conservation Area Appraisal (2015) and Management Plan (2017)
• Portersfield Development Brief (2024)
• Dudley's Historic Environment Record (HER)
• Dudley Town Centre Urban Historic Landscape Characterisation (2015)
• Dudley People's Panel - feedback on Dudley town centre (2019)
• Historic Environment Supplementary Planning Document (2017)
• Historic England Good Practice Advice Notes (GPAs) and Historic England Advice Notes (HEANs)
• National Design Guide
• Residential Design Guidance Supplementary Planning Document (2023)
• Urban Design Analysis (2023)

Delivery

• Historic Landscape Characterisation documents
• Adopted Conservation Area Character Appraisals
• Development Management process including Design and Access Statements and Statements of Heritage Significance
• Supplementary Planning Documents
• A regularly updated and maintained Historic Environment Record (HER).

Monitoring

Table 2.2: Dudley Monitoring Indicators

Figure 2.6: Dudley Inset Plan