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PDU Case Report XXXX/YY Date planning report GLA/4417/01 16 April 2018 100, 106/107 Leadenhall Street in the City of London planning application no. 18/00152/FULEIA Strategic planning application stage 1 referral Town & Country Planning Act 1990 (as amended); Greater London Authority Acts 1999 and 2007; Town & Country Planning (Mayor of London) Order 2008. The proposal Demolition of existing buildings and construction of a ground plus 56 storey building (263.4 metres AOD) for office use, retail use at the lower levels, a publicly accessible viewing gallery and restaurant/bar at levels 55/56. The applicant The applicant is Frontier Dragon Ltd and the architect is Skidmore, Ownings & Merrill LLP. Strategic issues summary Principle of development: The proposed development would respond to established demand for office space within the CAZ, and would support London’s continuing function as a World City. It is therefore strongly supported in accordance with London Plan and draft London Plan policies. The publicly accessible viewing gallery on levels 55 and 56 must be secured. (Paragraphs 16–20) Design: This is an appropriate location for a tall building, and the high architectural quality proposed is fitting for a development of this scale and prominence. Nevertheless further detail required regarding the elevational treatment of the lower floors and the public connections around the site. (Paragraphs 21-33) Strategic Views: The development would reinforce and enhance the characteristics of strategic views through an improved consolidation of the City’s eastern cluster and complies with London Plan Policy 7.12 and Policies HC3 and HC4 of the draft London Plan. (Paragraphs 34-35) Historic Environment: The development would not compromise the ability to appreciate the Outstanding Universal Value of World Heritage Sites and would not cause harm to the historic environment. Accordingly, the application complies with London Plan policies 7.8, 7.10, 7.11 and 7.12 and Policies HC1, HC2 and HC3 of the draft London Plan. (Paragraphs 36-41) Further information on Energy and Transport is required. (Paragraphs 44-45 and 47-53) Recommendation That City of London Corporation be advised that while the scheme is broadly supported, it does not yet fully comply with the London Plan and draft London Plan for the reasons set out in paragraph 57 of this report; however, the possible remedies set out in that paragraph could address these deficiencies. page 1 Context 1 On 19 March 2018, the Mayor of London received documents from the City of London Corporation notifying him of a planning application of potential strategic importance to develop the above site for the above uses. Under the provisions of The Town & Country Planning (Mayor of London) Order 2008, the Mayor must provide the City Corporation with a statement setting out whether he considers that the application complies with the London Plan and draft London Plan, and his reasons for taking that view. The Mayor may also provide other comments. This report sets out information for the Mayor’s use in deciding what decision to make. 2 The application is referable under Categories 1(B) and 1C(c) of the Schedule to the 2008 Order: • 1B(c) ‘Development (other than development which only comprises the provision of houses, flats or houses and flats) which comprises or includes the erection of a building or buildings in the City of London and with a total floorspace of 100,000 square metres’ • 1C(c) ‘Development which comprises or includes the erection of a building of more than 150 metres high and is within the City of London’ 3 Once the City of London has resolved to determine the application, it is required to refer it back to the Mayor for his decision as to whether to direct refusal; take it over for his own determination; or allow the Council to determine it itself. 4 The environmental information for the purposes of the Town and Country Planning (Environmental Impact Assessment) Regulations 2011 has been taken into account in the consideration of this case. 5 The Mayor of London’s statement on this case will be made available on the GLA website www.london.gov.uk. Site description 6 The site is located within the City of London within the ‘Eastern Cluster’: an area that contains a number of tall buildings located within the Central Activities Zone. The site currently contains three existing office buildings of up to ten storeys (100, 106 and 107 Leadenhall Street), which provide approximately 28,000 sq.m. of office accommodation and ground floor retail space. 7 The surrounding area is characterised by a juxtaposition of modern tall buildings and low rise historic buildings. Adjoining the site to the north is 30 St Mary Axe (also known as the Gherkin) and further to the north is the Grade I Listed Bevis Marks Synagogue. To the west of the site is the Grade I Listed St Andrew Undershaft Church and to the east of the site across Creechurch Lane is the Grade I Listed St Katharine Cree Church and the Grade II Listed 2-16 Creechurch Lane. Opposite to the south are several medium rise office buildings. Notable tall buildings within the wider eastern cluster include 122 Leadenhall Street (also known as the Cheesegrater), containing 48 storeys of predominantly office accommodation to the west of the site and 110 Bishopsgate (known as the Heron Tower, containing 46 storeys of predominantly office accommodation to the north-west. Recently consented developments to the west, at 1 Undershaft, 22 Bishopsgate and 6- 8 Bishopsgate, (which are 73 storeys, 62 storeys and 40 storeys respectively), and to the south at 52-54 Lime Street at 39 storeys also inform the context. Although the site is not within a Conservation Area, it is adjacent to the St Helens Place, Lloyds Avenue and Bank Conservation Areas. page 2 8 The site fronts Leadenhall Street, St Mary’s Axe and Creechurch Lane. Leadenhall Street forms part of the London Cycle Network (route 11). The nearest cycle super highway is CS2, which runs from Aldgate to Stratford. The site is in close proximity to a number of national rail stations (including Liverpool Street, Fenchurch Street and Cannon Street stations) and underground stations (including Liverpool Street, Bank, Monument and Aldgate), and numerous bus services. Measured on a scale of 0-6b where 6b is the highest, the site has a public transport accessibility rating of 6b. Details of the proposal 9 The applicant proposes the demolition of the existing buildings and construction of a ground plus 56 storey tower (263.4 metres AOD) for office use, retail use at the lower levels, a publicly accessible viewing gallery and restaurant/bar at levels 55/56. 10 The breakdown of the proposed floorspace is as follows: Use GIA (sq.m.) GEA (sq.m.) Retail (A1/A3/A4) 811 sq.m. 882 sq.m. Office (B1) 99,267 sq.m. 102,043 sq.m. Viewing Gallery (Sui Generis) 1,855 sq.m. 1,934 sq.m. Ancillary (basement/plant) 16,577 sq.m. 17,232 sq.m. Total Floorspace 118,510 sq.m. 122,091 sq.m Case history 11 On 18 October 2017, a pre-application meeting was held with GLA officers regarding the above proposal (GLA/4417). The principle of an office led development was strongly supported; however, concerns regarding the following strategic issues were raised; townscape, heritage, design quality, public viewing platform, wind, air quality, green infrastructure, inclusive access, energy, sustainability and transport. Strategic planning issues and relevant policies and guidance 12 For the purposes of Section 38(6) of the Planning and Compulsory Purchase Act 2004, the development plan in force for the area is the City of London Local Plan and the London Plan 2016 (consolidated with alterations since 2011). 13 The following are also relevant material considerations: • The National Planning Policy Framework; • National Planning Practice Guidance; and • Draft London Plan (consultation draft December 2017) which should be taken into account on the basis explained in the NPPF. 14 In addition, on 5 March 2018, the Government published the draft revised National Planning Policy Framework for consultation (until 10 May 2018). This should be taken into account appropriately in accordance with its early stage of preparation. page 3 15 The relevant issues and corresponding policies are as follows: • Central Activities Zone London Plan; Central Activities Zone SPG • Employment London Plan; Central Activities Zone SPG • Urban design London Plan; Shaping Neighbourhoods: Character and Context SPG; • Tall Buildings London plan; London View Management Framework SPG; • Heritage London Plan; Character and Context SPG; London View Management Framework; London World Heritage Sites SPG • Inclusive design London Plan; Accessible London: achieving an inclusive environment SPG • Climate change London Plan; Sustainable Design and Construction SPG; Mayor’s Climate Change Adaptation Strategy; Mayor’s Climate Change Mitigation and Energy Strategy; Mayor’s Water Strategy • Transport London Plan; the Mayor’s Transport Strategy Principle of development 16 London Plan Policies 2.10 and 4.2 and Policies SD4, SD5 and E1 of the draft London Plan recognise the established long-term demand for office space within the CAZ and strongly promote the renewal of office sites within the CAZ in order to meet this demand and support London’s continuing function as a World City. Accordingly, the proposed office scheme is strongly supported in principle. 17 The proposal would provide approximately 100,000 sq.m. of high quality B1 office floorspace in a flexible, multi-tenanted building. Strategically situated within the City’s ‘Eastern Cluster’ the scheme is particularly well positioned to support insurance and financial services districts of the City and could accommodate one or more large anchor tenants, as well as a variety of small to medium sized companies.
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