City Road Derwent London Applicant GIA Sunlight & Daylight

Application for Full Planning & Conservation Area Consent

On Behalf of Derwent London August 2010

Planning, Design and Access Statement

AHMM Architect Adams Kara Taylor Structural Engineering

Tibbalds Planning & Urban Design Planning Hoare Lea Noise and Vibration

Davis Langdon Cost Consultant Jackson Coles Project Manager

ARUP Mechanical & Electrical Engineering CgMs Archaeology Consultant, Sustainability and Energy, BREEAM

Waterman Group Transport, Ecology RWDI Wind

Peter Stewart Consultancy Heritage Miller Hare Verified Views

Jennifer Ross, Director

Tibbalds Planning & Urban Design 19 Maltings Place 169 Tower Bridge Road London SE1 3JB

Telephone 020 7089 2121 Facsimile 020 7089 2120

[email protected] www.tibbalds.co.uk ❚❚Contents

1 Introduction 3 5 Access, social inclusion & safety 57

1.1 Introduction to the project 4 5.1 Introduction 58

1.2 Content of the application 4 5.2 Legislation and planning context 58

1.3 Project team 5 5.3 Inclusive design - Offices 58

1.4 Document structure 5 5.4 Inclusive design - Residential 58

5.5 Inclusive design - Public realm 61 2 Site background 7 5.6 Safety and security 62 2.1 Site location 8

2.2 The site 9 6 Assessment of development proposals 63

2.3 The surroundings 12 6.1 Introduction 64

2.4 Recent planning history 14 6.2 The mix of land uses 64

2.5 Policy status of the site 18 6.3 The height of building A 66

2.6 Relevant planning policy 20 6.4 The design of building A 66

6.5 The impact of building A on LVMF views, 3 Analysis, concept & design evolution 21 conservation areas and listed buildings 69 3.1 Summary of site analysis 22 6.6 The demolition of buildings in a 3.2 Design concept 22 conservation area 71

6.7 Impact on amenity of neighbours 71 4 The development in detail 25 6.8 Servicing strategy and parking 71 4.1 Introduction 26 6.9 Environmental sustainability 72 4.2 The development 26 6.10 Planning obligations 73 4.3 Land Use 27 6.11 Summary of key benefits 74 4.4 Floorplans 30

4.5 Architectural response 35 7 Planning application drawings 75

4.6 Public realm and landscape 43

4.7 Parking 46

4.8 Refuse and servicing 47

4.9 Estate management 49

4.10 Energy and sustainability 50

4.11 CGIs of proposals 50 100 City Road Planning, Design & Access Statement ©TIBBALDS AUGUST 2010 2 1 IntroductionIntroduction

Planning, Design and Access Statement 3 & 10 Finsbury Square 3 1.1 Introduction to the project whilst they could pursue the extant permission it 1.2 Content of the application 1.2.2 In addition to this ‘Planning, Design and Access would be their preference to pursue an office led Statement’ a number of other documents have been 1.1.1 This Planning, Design and Access Statement scheme on the site. As part of this discussion it 1.2.1 The application includes for the following: submitted in support of the full planning application provides an explanation of the application proposals was also confirmed that given the extant consent and conservation area consent including: Conservation Area Consent for the: to redevelop the land and buildings at 210-216 Old timescales that planning consent for such an office ■■ A covering letter; Street, 70-100 City Road, 32-37 Featherstone Street alternative would need to be secured by 2011. ‘Demolition of 210-216 Old Street, 32-35 Featherstone Street and 13 –15 Mallow Street and ■■ The relevant planning and conservation area and 13- 15 Mallow Street, adjoining the Old Street 1.1.6 In response and in the context of Member’s rejection the rear (west part) of 82-100 City Road fronting onto consent application form and certificates along Roundabout in the London Borough of Islington. of the LMS proposals at the South Area Planning Mallow Street’. with the requisite planning application fee Committee on 3rd July 2007 senior officer’s 1.1.2 The application, which involves a significant payable to the London Borough of Islington; commercial office led mixed use development confirmed to Derwent London that the Council Planning application for the comprehensive follows on from a previous planning consent would be prepared to consider alternative options redevelopment of the site involving: ■■ Transport Statement and Draft Travel Plan, for the redevelopment of the site. prepared by Waterman Group; that was granted to the applicant on appeal ■■ The retention of 70-74 City Road and 36-37 on 28th October 2008 (LBI refs: P061277 and 1.1.7 Based on these discussions Derwent London Featherstone Street and works of alteration to ■■ Energy Statement, prepared by Arup; P061278. APP/V5570/E/08/2066102 and APP/ facilitate their refurbishment for specified uses. formulated a revised development brief and ■■ Sustainability Statement, incorporating a V5570/A/08/2066104). appointed a new design team, led by architects ■■ The change of use of the first to third floors of BREEAM offices 2008 pre-assessment 1.1.3 These appeal proposals included: AHMM. 36-37 Featherstone Street from Class B1 office estimator and Code for Sustainable Homes pre- ■■ The demolition of 70-74 City Road, 76-80 1.1.8 The submission of this planning application to Class C3 residential (3 units). assessment, compiled by Arup; represents the culmination of some 12 months of City Road (Sophia House), 82-100 City Road ■■ ‘The construction of four new buildings (Building ■■ Historic Environment Report prepared by Peter (Transworld House), 32-35 Featherstone Street pre-application work by the applicant, Derwent ‘A’, up to 90.09 metres in height (AOD); Building Stewart; and13-15 Mallow Street. London and their professional team. This pre- B up to 40.39 metres in height (AOD); Building D application process has involved the consideration ■■ Townscape and Visual Assessment prepared by ■■ The retention of 36-37 Featherstone Street and up to 40.37 metres in height (AOD) and Building of a number of alternative re-development options Tibbalds, with verified views prepared by Miller the construction of a two-storey roof extension. F up to 31.5 metres in height (AOD)) to provide: and has been informed by discussions with LB Hare; -- Up to 32,625 sqm (GEA) of Class B1 ■■ The construction of three new buildings, Islington officers, the GLA and the residents ■■ floorspace. Archaeological desk-based assessment, including a 38-storey residential tower and businesses who live and work in the streets prepared by CgMs; - Up to 728 sqm of mixed retail uses for use fronting Old Street Roundabout, a nine storey surrounding the development. - Class A1, A2, A3, A4. ■■ Daylight and Sunlight Report, prepared by GIA; commercial office building situated on the corner 1.1.9 As a result of this process the application proposals of City Road and Featherstone Street and a five -- 6 residential units (Class C3). ■■ Acoustic Strategy Report, Hoare Lea Acoustics; seek to strike an appropriate balance between the storey residential building fronting onto Mallow -- Alterations to an existing service access onto various issues raised and as a result bring forward a ■■ Pedestrian level wind microclimate assessment, Street. Mallow Street. high quality and appropriate architectural response prepared by RWDI; - Provision of a new publicly accessible hard 1.1.4 The current owners of the site, Derwent London to what comprises a key node and entry point into - landscaped space. ■■ Statement of Community Involvement, prepared acquired the site following a merger with London both the City to the south and Islington to the north. Ancillary plant and equipment’. by Tibbalds; Merchant Securities (LMS) as the mixed-use -- 1.1.10 This Planning, Design and Access Statement scheme described above was moving through the ■■ Planning application drawings, area schedule (PD&A Statement) is one of a number of documents planning appeal process. Derwent London decided and supporting illustrative material prepared by that has been prepared to support this detailed to pursue the appeal in order to establish a planning AHMM; and planning submission. It is, however the key position on the site. document in that it provides a detailed explanation ■■ Area schedule prepared by Davis Langdon. 1.1.5 At the conclusion of the appeal process and on in terms of the background to the project; the the grant of planning permission Derwent London content of the planning application; the factors that confirmed to senior officers at LB Islington that have influenced the design and its evolution; the component parts of the development proposals and how the proposals relate to the prevailing planning policy framework.

100 City Road Planning, Design & Access Statement ©TIBBALDS AUGUST 2010 4 1.3 Project team 1.4 Document structure

1.3.1 The application has been prepared by the 1.4.1 This statement is structured as follows: applicant’s agent, Tibbalds and architects AHMM, ■■ Section 1: Introduces the project with input from a comprehensive team of advisors. The core project team and their roles include: ■■ Section 2: Describes the application site, planning history and the current planning Derwent London Applicant policy framework as it relates to the site and the AHMM Architect proposed redevelopment.

Jackson Coles Project Manager ■■ Section 3: Introduces the client brief, the key principles that underpin the design and how it Tibbalds Planning has evolved in response to consultations that Peter Stewart Heritage have taken place through the process.

Arup Mechanical & Electrical ■■ Section 4: Provides a detailed description of the Engineering Consultant, development proposals, including layout, scale, Sustainability and appearance of the development, access and Energy, BREEAM parking, structure and services and energy and Adams Kar Taylor Structural Engineering sustainability.

Davis Langdon Cost Consultant ■■ Section 5: Discusses access, social inclusion and safety and describes how the design GIA Sunlight & Daylight provides both for an inclusive environment and CgMs Archaeology for those with disabilities.

Waterman Transport, Ecology ■■ Section 6: Explores the implications of the proposals in relation to the prevailing planning Hoare Lea Noise & Vibration policy framework at the national, regional and RWDI Wind local levels, and provides a summary of the proposals and outlines the key benefits of the Miller Hare Verified Views development.

■■ Section 7: Includes a set of the planning application drawings for which full planning and conservation area consent is sought.

©TIBBALDS AUGUST 2010 100 City Road Planning, Design & Access Statement 5 100 City Road Planning, Design & Access Statement ©TIBBALDS AUGUST 2010 6 2 Site backgroundIntroduction

Planning, Design and Access Statement 3 & 10 Finsbury Square 7 2.1 Site location

2.1.1 The site occupies a highly prominent position on the southwest corner of Old Street roundabout on the northern fringes of the City of London. The roundabout is an important node or entry point

into the City. It marks the point where the two EastRoad key strategic routes of City Road and Old Street

converge from the north, west and east. These City Road routes connect the City with Kings Cross, Euston, Clerkenwell, Holborn and the West End.

2.1.2 The roundabout, City Road (north) and Old Street (east) form part of the Transport for London Road network (TLRN), whilst Old Street (west) and City Road (south) form part of the Borough Principal Road network (PRN). Each route carries high volumes of traffic, including heavy goods vehicles, throughout the day. Such large volumes of traffic has a significant and negative impact upon the quality of the pedestrian environment. Old Street 2.1.3 The site has a PTAL (Public Transport Accessibility Level) of 6b (the highest achievable). The site is located in very close proximity to Old Street station, which is served by the City branch of London Underground’s Northern line and by National Rail Old Street services. The site is also within walking distance of Moorgate and Liverpool Street stations. In addition Mallow Street a number of bus routes operate in close proximity

to Old Street roundabout and there are a number of City Road cycle routes in the vicinity of the site (see Transport Assessment).

2.1.4 The site itself occupies an entire city block, bound by Old Street and the roundabout to the north, City Leonard Street Featherstone Street Road to the east, Featherstone Street to the south and Mallow Street to the west.

Tabernacle Street

Figure 2.1: London Borough of Islington Figure 2.2: Aerial of site and context 100 City Road Planning, Design & Access Statement ©TIBBALDS AUGUST 2010 8 2.2 The site The lower parts of the elevations are in stone, the upper parts in brick, with the top floor built 2.2.1 The site comprises of a city block of approximately as a slated mansard on Featherstone Street 0.41ha, part of which is included within the Bunhill (it is of brick on City Road). The exterior of the Fields and Finsbury Square Conservation Area building appears to be in reasonable condition, 211 Old St. (Figure 2.3). although there have been some unsympathetic alterations over the years to the ground floor. The BT Building 2.2.2 The site is currently occupied by a varied group architecture is typical of the period, commercial of nineteenth and twentieth century buildings, as neo-Georgian with minor hints of Art Deco follows (Figures 2.4 to 2.7): influence. ■■ 210-216 Old Street, referred to here on as 210 ■■ 36-37 Featherstone Street. A four storey Old Street comprises a ground plus three-storey Immarsat commercial building located on the corner of office building built in the 1930s in an Art Deco 7 Featherstone Street and Mallow Street, which Building style. appears to date from the 1880s or 1890s. The Old Street ■■ Transworld House (82-100 City Road), building forms a pair with 30-40 Featherstone a ground plus seven storey building which Street, the building facing it to the west on the was built in the 1950s and which occupies a other side of Mallow Street. prominent and highly visible location overlooking The elevations of the building are in red brick with 1 both City Road and Old Street Roundabout. large windows. There are variously classically- The rear (west) part of the building fronts onto derived details in painted stone or stucco, with Mallow Street. Access to a basement car park suggestions of pilasters at ground level and and parking for 32 cars is provided via a car lift at the upper levels. The overall ordering of the Bezier situated in the frontage to Mallow Street. architecture is expedient and not derived from Buildings ■■ Sophia House (76-80 City Road & 32-35 classical models. The architecture is robust, 2 Featherstone Street) has frontage to both City typical of the period and this part of London. Road and Featherstone Street. It is a typical ■■ 13-15 Mallow Street, situated on the east side Mallow Street example of post-war commercial architecture of Mallow Street midway between Old Street and 6 dating from the 1950s or 1960s. It has red and Featherstone Street. The building dates from the 3 grey/brown brickwork with metal windows 1960s and has a red brick façade, steel framed grouped in horizontal strips. On City Road it is windows and a roller shutter door leading six storeys tall and on Featherstone Street it is to a loading bay/ parking area. The building four storeys high to the parapet plus a setback 4 comprises lower ground, ground and two upper roof storey. Car parking for 24 cars is provided floors. 5 in a basement below the building. The building is serviced via a loading bay situated in the Key 1 210 Old Street Featherstone frontage. Leonard Street Featherstone Street 2 Transworld House, 82-100 City Rd ■■ 70-74 City Road. A six storey commercial building situated on the corner of City Road and 3 Sophia House, 76-80 City Rd Featherstone Street. The Historic Environment 4 70-74 City Rd service access points Report, which accompanies the application City Road suggests that the building dates from the early 5 36-37 Featherstone Street access to Old St. tube station 1930s. 6 13-15 Mallow Street conservation area

7 Old Street ‘promenade of light’ Figure 2.3: Existing site ©TIBBALDS AUGUST 2010 100 City Road Planning, Design & Access Statement 9 Photographs of existing urban block

210 Old Street Connects to 13-15 Mallow St. 36-37 Featherstone Street

82-100 City Road

(Transworld House) A

Location of sections

A Figure 2.4: Mallow Street

Nos. 38-40 Buildings perform as Nos. 36-37 Nos. 32-35 Nos. 70-74 City Road a pair across Mallow Street

B Figure 2.5: Featherstone Street

100 City Road Planning, Design & Access Statement ©TIBBALDS AUGUST 2010 10 Lexington Building 58-64 City Road Featherstone 70-74 City Road 76-80 City Road 82-100 City Road (Monmouth House) Street (Sophia House) (Transworld House) D

Location of sections

C Figure 2.6: City Road

82-100 City Road 210 - 216 Old Street Mallow Street 200 - 208 Old Street 196 - 198 Old Street (Transworld House) (Shell Garage) (City Cloisters)

D Figure 2.7: Old Street 2no. planning applications (by Shell) previously withdrawn - both 5 storeys

©TIBBALDS AUGUST 2010 100 City Road Planning, Design & Access Statement 11 2.2.3 The buildings combined provide a total of 2.3 The surroundings postwar period, but built to the back of pavement. already mentioned a new residential development 18,138sqm (GEA) of office floorspace and 1,162sqm 210 Old Street is flanked by the open forecourt of (the Bezier) has recently been completed. (GEA) of restaurant/café floorspace, arranged as a petrol station to its west. There is a reasonably 2.3.1 The immediate setting of the site can be considered 2.3.8 Featherstone Street has some decent Victorian follows: coherent frontage west of the petrol station, mostly in relation to the two major roads (City Road and buildings interspersed with typical mid-century Old Street) and the two side streets (Featherstone post-war, with some earlier buildings. Existing buildings Office sqm Retail/ commercial buildings. The buildings are generally and Mallow Streets) that define the edges of the site, (GEA) restaurant 2.3.6 City Road to the south of Old Street roundabout around five-storeys high and faced with a variety of together with Old Street roundabout, which has a (GEA) is varied in character. In Finsbury Square, to the materials (including granite, metal and storey height strong character of its own. 210 Old Street 2,855 south, buildings are generally six or seven storeys cladding panels). The street does not have a strong Transworld House 6,408 267 2.3.2 Figure 2.8 shows the dominance of the roundabout with one or two mansard floors. The character of the character; the paired Victorian buildings on either Sophia House 5,347 281 on the urban fabric. The 1960s highway scheme square is overtly commercial with large city scale side of Mallow Street (38-40 Featherstone Street are 70-74 City Road 1,657 614 was an urban intervention on a massive scale, but buildings enclosing the space. Moving north, the the only features of interest. older buildings on the west side of City Road are 13-15 Mallow Street 920 as was characteristic of that period, no effort was 2.3.9 Mallow Street has a good sense of enclosure at its made to repair the resulting damage to buildings generally four or five storeys high on the frontage, 36-37 Featherstone 951 south end but this ends fairly rapidly on reaching the with one or two attic or mansard floors above, and Street and urban form. The built form on all four corners petrol station at its northern end. The buildings on remains fragmented today. no consistent architectural style or quality. They Totals 18,138 1,162 the southern corners and those that extend up the give way to the Honourable Artillery Company’s 2.3.3 In addition the buildings surrounding the west side have more architectural coherence and buildings, including the listed barracks on City Road, roundabout are larger in scale than the buildings in quality than those on the east. and then Bunhill Fields Burial Ground, with its listed 2.2.4 The site is in a single ownership and the various the surrounding secondary streets. The nine storey tombs, boundary walls, gates and railings. North of parts of the building are either vacant or leased to Inmarset building, clad mainly in opaque glass that is Lexington House, comprising of a five-storey a variety a tenants on a short -term basis pending occupies the south-east side of the roundabout. A frontage (ground floor, three upper floors faced with redevelopment. sixteen storey high rectilinear office building, again red brick, a recessed fifth floor and an oversailing clad mainly in opaque and reflective glass, is on its 2.2.5 The pursuit of a comprehensive redevelopment roof) and, above it, set only a little back from the north-west side and is occupied by BT. The Bezier strategy reflects the fact that the majority of the street, the building rises to thirteen storeys in total. residential buildings, at 14 and 16 storeys have buildings on the site suffer from a number of North of it, and on the south side of Featherstone recently been completed on the south east corner of operational shortcomings and are reaching the end Street, is a modern four-storey building of no the roundabout. A housing estate to the north-east of their economic and design lives. architectural merit. provides no meaningful frontage. 2.2.6 Comprehensive redevelopment provides an 2.3.7 The eastern side of City Road between Finsbury 2.3.4 A little to the north of the roundabout, on the opportunity to overcome the existing site constraints Square and Old Street roundabout has no west side of City Road and within the Moorfields and deliver a solution that maximises the potential of consistent character. Just north of Finsbury Conservation Area, is the former Leysian Mission, a prominent city fringe site. Square is Lowndes House, a stone built building now Imperial House, a substantial building dating situated on the junction between City Road and from just after 1900, clad primarily in terracotta and Tabernacle Street. To its north, a series of modern displaying the ornament and detail that one would buildings of limited architectural merit maintain expect of a grand civic building of this period. the scale of development. The enclave of listed 2.3.5 Old Street, west of the roundabout is varied in Wesleyan buildings to the north of these buildings character and quality. The north side opposite the provide a complete contrast, comprising a series site is fronted by large and tall postwar buildings, of listed buildings set back from the street around variable in quality but laid out in a fairly coherent a landscaped courtyard. North again are modern pattern with a recently completed public realm office buildings of limited architectural quality. On scheme (‘The Promenade of Light’) between the the north side of Leonard Street is the Angel public road and the buildings, which gives to a limited house, a ground plus three-storey building, dating extent the feel of a continual boulevard. On the from 1900 and typical of its time. To the north and as south side, most of the buildings are also from the

Old Street Roundabout, looking north

■■ 1964 Before Old St. roundabout. ■■ 1964 With outline of Old St. roundabout. ■■ 2009 With Old St. roundabout.

■■ City block is defined by orthogonal street pattern. ■■ Urban grain changes with introduction of roundabout. ■■ Compromised townscape setting. The Bezier Buildings Figure 2.8: The changing context from the 1960s

Looking towards Mallow Street Figure 2.9: Photographs from 3rd floor Transworld House ©TIBBALDS AUGUST 2010 100 City Road Planning, Design & Access Statement 13 2.4 Recent planning history 2.4.4 The planning application was revised on two separate occasions in response to consultation. The 2.4.1 From 1980 onwards a number of planning final application involved, change of use of the first to permissions have been granted on the site that have third floors of 36-37 Featherstone Street from Class involved upgrading and modernising the existing B1 office to Class C3 residential; and construction of 3 new buildings (Building A, up to 149 metres in buildings and the introduction of retail and other ‘A’ 211 Old St class uses into the lower floors of a number of the height AOD; Building B up to 57 metres in height buildings. The most significant and indeed relevant AOD; Building C1, up to 37 metres in height AOD) BT Building application, in the context of this submission is, and the construction of a two storey roof extension however the application first submitted by LMS (City to 36-37 Featherstone Street (Building C2) to Road) Ltd (a wholly owned subsidiary of Derwent provide: London Plc) on 8th June 2006. ■■ 225 residential units (37 intermediate in the tower 2.4.2 The application site comprised all of the buildings and 18 social rented units in Buildings C1 and C2 Immarsat currently included in this application, apart from 210 – 35.1% by habitable room). Old Street, which was at the time in use on a lease Building ■■ 12,301sqm GEA of Class B1 office use. Old Street until 2017. ■■ 1,146sqm of mixed retail/ commercial within 2.4.3 The applications involved: ground floor of Building B for use classes A1, A2, ‘Conservation Area Consent for: A3, A4 and/or B1; Demolition of 70-74 City Road, 32 -35 Featherstone retail Street, 13-15 Mallow Street and the (rear) west part ■■ Basement car parking for 34 cars (19 residential, of 82-100 City Road fronting Mallow Street’ 2 car club, 7 disabled spaces and 5 essential spaces), 3 delivery vehicles, 285 bicycles, 12 1 ‘Planning application for: motorbikes; Bezier ‘The change of use of use to first to third floors of 5 36-37 Featherstone Street from Class B1 office to ■■ Alterations to existing and servicing and access Buildings Class C3 residential. points along Mallow Street and Featherstone Street. The construction of 3 new buildings (Building A, 4 up to 161 metres in height AOD; Building B up to ■■ 36 cycle spaces at street level. retail 60 metres in height AOD; Building C1, up to 40 Mallow Street metres in height AOD) and the construction of a two storey roof extension to 36-37 Featherstone Street 2 (Building C2) to provide: 3 1 residential tower with retail at ground ■■ 250 residential units retail ■■ 13,402sqm GEA of Class B1 office use. 2 office building with retail at ground

■■ 1,146sqm of mixed retail/ commercial within 3 social housing with 36-37 Featherstone St refurbished Leonard Street ground, mezzanine, first and second floors of Featherstone Street Building B for use classes A1, A2, A3, A4 and/ 4 car lift to basement parking or B1; 5 service yard to 210 Old St retained

■■ Basement car parking for 60 cars, 249 bicycles, City Road 12 motorbikes; service access points ■■ Alterations to existing and servicing and access access to Old St tube station points along Mallow Street and Featherstone Street. Figure 2.10: The consented scheme - Site plan 100 City Road Planning, Design & Access Statement ©TIBBALDS AUGUST 2010 14 2.4.5 The applications were presented to the South site would be harmful to the character and Area Planning Sub- Committee on 3rd July 2007. appearance of the CA. The planning officer’s recommendation to the committee was to grant consent. The SAPSC, 2.4.7 The applicant subsequently appealed the above however overturned the officer’s recommendation decisions. The appeals were called-in by the and refused both applications. The Member’s Secretary of State for Communities and Local reasons for refusal for planning permission were Government because the proposed development subsequently detailed in a letter from the Council involved more than 150 dwellings and because the dated 1st August 2007: conservation area consent appeal would be more appropriately considered in conjunction with the 1. The height, scale and bulk of the proposed planning appeal. development is agreed to be excessive for the 2.4.8 A public inquiry was held in July 2008. The main site and would be contrary to policies D1, D4, consideration at the appeal was urban design D5, D9 and D18 of Islington’s UDP 2000 and and as confirmed under paragraph 121 of the policies 4B.1, 4B.8 and 4B.9 of the London Plan Inspector’s decision letter comprised several 2004. overlapping elements, as follows:

2. The proposed development would provide an Element one: The merits of the proposed residential inadequate level of open space/ amenity space tower; for future residents and would be contrary to policies D3(iii), H3 (i) and H10 (ii) of the Islington Element two: The impact of the tower on the UDP 2000, Islington SPG Section 1.3 and policy character and appearance of the Bunhill Fields 4B.9 of the London Plan 2004. and Finsbury Square Conservation Area and other Conservation Areas in the vicinity and also on the 3. The height, scale and bulk of the proposed settings of listed buildings in the vicinity; development would have an adverse impact on Element three: Whether 70-74 City Road makes the setting of nearby statutory listed buildings a positive contribution to the character and and the Bunhill Fields/ Finsbury Square appearance of the Bunhill Fields and Finsbury Conservation Area and would be contrary to Square Conservation Area; and policies D19 and D22 of the Islington UDP, Islington CAG (CA22) SPG 2002, and policies Element four: The impact of the office building 4B.10, 4B.11 and 4B.12 of the London Plan. which would replace 70-74 on the character and appearance of the Bunhill Fields and Finsbury 2.4.6 These planning reasons for refusal were followed by Square Conservation Area. a second letter dated 11th September 2007, which detailed the Council’s conservation area consent 2.4.9 In response to each of the above issues the reasons for refusal, which were as follows: Inspector concluded the following:

1. The proposed development would cause the Element one: The proposed residential tower. loss of a locally listed building at 70-74 City Road The proposed tower was considered to be entirely and would be contrary to policies D21 and D42 acceptable in design terms and to satisfy the of the UDP, the CA guidelines and policies 4B.10, relevant London Plan and UDP policies. 4B.11 and 4B.12 of the London Plan Element two: The impact of the tower on its 2. The premature demolition of a building in urban context. Old Street roundabout is identified advance of an acceptable scheme for the by both the GLA and LBI as an appropriate location for tall buildings. Figure 2.11: 3D sketch of consented scheme ©TIBBALDS AUGUST 2010 100 City Road Planning, Design & Access Statement 15 In terms of ‘how tall’ the Inspector concluded that, Element three: Whether 70-74 City Road makes 2.4.12 Based on the above analysis the following provides ‘Given the existing BT building on Old Street and a positive contribution to the character and a summary of the key planning principles that were the approved Bezier development on the Central appearance of the Bunhill Fields and Finsbury established as a result of the appeal proposals: Foundation School site, both some 55m tall, it Square Conservation Area 70-74 City Road. The ■■ Principle 1: The demolition of 70-74 City Road, might be reasonable to assume that something inspector concluded that the building ‘does not 32-35 Featherstone Street and 13-15 Mallow noticeably higher than either (on the appeal site) was seem to have the architectural or historic interest Street and the rear part of 82-100 City Road. envisaged’. that would make its contribution to the character and appearance of the CA an overtly positive one’. ■■ Principle 2: The retention of 36-37 Featherstone The Inspector in reaching his conclusions could see In his opinion, its value lies ‘...in providing a visual link Street, the addition of a two-storey mansard no problem in introducing the tower on Old Street between nearby and otherwise separate buildings’. extension and the change of use of existing or on the roundabout itself, ‘There are no buildings The inspector agreed with the appellant’s floors 1-3 to residential. of architectural or historic merit in the immediate conclusion that the building’s contribution to vicinity. The BT and Inmarsat buildings cannot ■■ Principle 3: The construction of a landmark the character and appearance of the CA is ‘only claim any visual merit. There is no reason why the building of up to 149m AOD on the roundabout. marginally on the positive side of neutral’. As such proposed tower should not be significantly higher the inspector concluded that, subject to there being ■■ Principle 4: The construction of a building of than either’. It would provide a focal point or marker acceptable redevelopment proposals for the site, up to 57m AOD on the corner of City Road and – and something more worthy on which to base any conservation area consent for its demolition would Featherstone Street, although concerns were future development proposal that might emerge on not run contrary UDP policy. expressed by the Inspector in terms of the mass the other three quadrants of the roundabout’. and the scale of this building and the relationship Element four: The impact of the office building, In relation to impact on historic assets the Inspector the proposed building would have upon its which would replace 70-74 on the character and felt that, ‘three views encapsulated the impact of the neighbours, most notably 36-37 Feathertsone appearance of the Bunhill Fields and Finsbury tower on historic assets:’ Street and the Angel public house. Square Conservation Area. The Inspector ■■ ‘The view north along City Road from the north- considered that the proposed office building was ■■ Principle 5: The construction of building of up to eastern corner of Finsbury Square, with the out of scale with its surroundings, both in the BF&FS 40m AOD fronting Mallow Street. Bunhill Fields and Finsbury Square Conservation CA in Featherstone Street and outside it in City ■■ Principle 6: A mix of uses, including commercial Aarea and in which the listed Lowndes House, a Road (Figure 2.14). offices, residential and retail/ restaurant. local landmark is prominent (Figure 2.14); 2.4.10 Based on the above the Inspector recommended ■■ Principle 7: The creation of a permeable block, ■■ The view north from the southern gate to the that the CA Consent appeal be allowed but that the with pedestrian through streets. Honourable Artillery Company grounds, also planning appeal be dismissed due to the fact that ■■ Principle 8: Alterations to the existing service within the BF & FS Conservation Area in which the replacement office building was considered to and access points on Featherstone and Mallow the listed Armoury House is prominent. (Figure be out of scale with its surroundings. 2.13; Streets. 2.4.11 The SOS in her decision, dated 28th October ■■ Principle 9: A basement car park and parking for ■■ The view south from East Road, in which the 2008 disagreed with the Inspector’s conclusions up to 60 cars. listed Leysian Mission, another local landmark in relation to the proposed replacement office and an important building in the Moorfields CA is building. She considered that the scale of the prominent’ (Figure 2.16). office building was acceptable in its context and The Inspector concluded that whilst the tower would that its design embodied materials and details of clearly be prominent in many views from within the high quality. Accordingly the SOS granted both BF&FSCA and the settings of various important the Conservation Area Consent and Planning listed buildings the effects would not be harmful to applications. the architectural or historic interest of the BF&FSCA, Moorfields CA or the various listed buildings in the vicinity.

100 City Road Planning, Design & Access Statement ©TIBBALDS AUGUST 2010 16 Figure 2.13: View north across HAC grounds Figure 2.15: View east along Featherstone Street

Figure 2.12: View north along City Road Figure 2.14: View north along City Road from corner of Finsbury Square Figure 2.16: View south along East Street

©TIBBALDS AUGUST 2010 100 City Road Planning, Design & Access Statement 17 2.5 Policy status of the site ■■ The site is within an area where there is potential for higher buildings as identified by LB Islington 2.5.1 The site is covered by a number of overlapping in their Supplementary Planning Advice Note on planning policy designations at the regional, Building Heights. The Council identify the Central strategic and local levels, as outlined below: Business District to the south of City Road as a location suitable for high buildings, where they ■■ The site is within the defined Central London reinforce the City fringe and coincide with the boundary, as detailed in the Town and Country major transport node of Old Street Roundabout. Planning (Mayor of London) Order 2000. ■■ The site includes a number of buildings within the ■■ The site is within the boundary of the Central Bunhill Fields and Finsbury Square Conservation Activities Zone (CAZ) as identified in the London Area (CA22) (Figure 2.18), as identified in the Plan. The CAZ is recognised as an area that is LB Islington Adopted UDP 2002 and set out in capable of strategic growth through a mix of land more detail in the Conservation Area Design uses. Guidelines (January 2002). Accordingly, there ■■ The site is within an ‘Area of Regeneration’, as is a planning policy obligation to preserve and identified by the London. Within these areas enhance the special character and appearance there is scope to bring together regeneration, of these areas. development and transport proposals with ■■ The site includes three locally scheduled improvements in learning and skills, health, buildings, 210 Old Street, 70-74 City Road safety, access, employment, environment and and 36-37 Featherstone Street, as identified housing. in LB Islington Adopted UDP 2002, where the ■■ The site is within the ‘North London Sub-region’ presumption is to retain unless ‘there are special as identified in the London Plan, with priorities circumstances or the proposal would preserve for accommodating new jobs and housing or enhance the character or appearance of the opportunities and appropriate mixed-use conservation area’ development. ■■ The site is within the Bunhill and Clerkenwell ■■ The site is within the boundary of the Central Area Action Plan (AAP) area. An AAP is London Policy Area, identified in the LB Islington currently being prepared as part of Islington’s Adopted UDP 2002. This reflects the aspirations Local Development Framework (LDF). A public of the Council to amongst other things consultation exercise was held in June/July encourage business growth and other suitable 2009 to get feedback on issues and options. It is uses within central London, support measures envisaged that a draft AAP will be produced and to reduce the volume of traffic entering the city the next consultation is scheduled for Summer and encourage additional residential dwellings. 2010, in line with the Council’s adopted LDS. Figure 2.17: Extract from UDP Proposals Map ■■ The City Fringe & Finsbury ‘Priority Area for Regeneration’, as defined in the LB Islington Adopted UDP 2002. Within this area the focus is upon securing employment opportunities for local residents, promoting the development of under-used buildings and improving the environment.

Former Leysian Mission

Lownes House

Figure 2.18: Map showing Conservation Areas and Listed Buildings around the site Figure 2.19: Photographs of Listed Buildings close to the site

©TIBBALDS AUGUST 2010 100 City Road Planning, Design & Access Statement 19 2.6 Relevant planning policy ■■ PPS 23: Planning and Pollution Control (2004) Sustaining its role as the core location for details of all planning policy documents, which the international business and finance is considered local authority proposes to produce. A draft Core ■■ PPG 24: Planning and Noise (1994) 2.6.1 Section 38(6) of the Planning and Compulsory crucial. Strategy document has been prepared and sets 2.6.5 In addition to the above other government and out the overall vision and spatial strategy for the Purchase Act 2004 requires planning applications to 2.6.10 In addition to this the site lies within the North national level guidance relevant to this application Borough and includes a set of strategic objectives be determined in accordance with the Development London sub-region of the London Plan. Policy 5B.1 includes: and core policies. Until this is adopted the saved Plan, unless material considerations indicate sets out a list of strategic priorities for the sub-region policies of the UDP remain development plan policy. otherwise. ■■ Safer Places: The Planning System & Crime which include: 2.6.2 The Development Plan for the site is the Saved Prevention (2004); 2.6.15 The adopted UDP sets out ten strategic priorities for ■■ taking advantage of the sub-region’s exceptional lslington, of relevance to this application includes; Policies from the London Borough of Islington’s ■■ Planning & Access for Disabled People: A Good access to the CAZ to sustain high levels of the provision of high quality developments, ensuring Unitary Development Plan, which was adopted in Practice Guide (2004); economic and population growth; and 2002, along with the Spatial Development Plan for planning decisions reflect the need for sustainability, ■■ CABE/EH Guidance on Tall Buildings (2007); and Greater London (The Consolidated London Plan, ■■ improving the quality of the environment with and encouraging sustainable economic 2008). Both of these documents embrace policy ■■ CABE/DETR ‘By Design’ (2000). emphasis on sustainable forms of development, growth. movement and improving the public realm. guidance issued at the national level. 2.6.16 The application site is designated as follows within 2.6.3 The following documents have been taken into 2.6.11 For the purpose of this application the relevant the UDP proposal map: Regional Planning Policy consideration in the preparation of the application London Plan supplementary guidance is: ■■ Bunhill Fields/Finsbury Square Conservation 2.6.6 At a regional level the Consolidated London Plan proposals: ■■ London View Management Framework (2010); Area; (February 2008) sets the relevant regional planning policy guidance for Islington. ■■ Sustainable Design and Construction (2006); ■■ Central London Area; National Planning Policy 2.6.7 The application is referable to the Mayor of London ■■ Accessible London: Achieving an Inclusive ■■ Archaeological Priority Area. Environment (2004). 2.6.4 The relevant national planning policy is set out in the under the terms of the Town & County Planning 2.16.17 The relevant LBI supplementary planning guidance various Planning Policy Statements, Planning Policy (Mayor of London) Order 2000 (SI no.1493), as 2.6.12 Other relevant Mayoral Strategies and Documents includes: Guidance Notes and Government Circulars: an application of ‘potential strategic importance’, include: being a large-scale development and including the ■■ SPD – Planning Obligations (2009) ■■ PPS 1: Delivering Sustainable Development ■■ Mayor’s Energy Strategy (2004); erection of buildings of more than 30m in height (2005) ■■ SPG - Planning Standards Guidelines (2002) outside the City of London. ■■ Shaping London - Mayor’s Draft Economic ■■ SPG – Revised Conservation Area Guidelines ■■ PPS 3: Housing (2010) Development Strategy (2009); 2.6.8 The Mayor recognises that London has very (2002) ■■ PPS4: Planning for Sustainable Economic distinctive strategic needs and as such the London ■■ Mayor’s Draft Air Quality Strategy (2009); ■■ SPG - Sustainability Assessments (2002) Growth (2009) Plan is designed to facilitate London’s continued ■■ Ambient Noise Strategy (2004); ■■ PPS5: Planning for the Historic Environment success as a World City. One of the most significant ■■ SPG – Green Construction (2003) challenges the Mayor faces is to accommodate ■■ Biodiversity Strategy (2002). (2010) ■■ SPG - Green Travel Plans (1999) significant growth in ways that respect and enhance ■■ PPS 9: Bio-diversity and Geological London’s diverse heritage while delivering his vision ■■ SPG – Use of Groundwater (2002) Conservation (2003) Local Planning Policy for an exemplary, sustainable world city. It will ■■ Draft Issues and Options Bunhill and Clerkenwell ■■ PPS10: Planning for Sustainable Waste involve the sensitive intensification of development in 2.6.13 As noted the Development Plan for the site is AAP (2009) Management (2005) locations that are well served by public transport. the Saved Policies of the London Borough of 2.6.18 Section 6 of this statement examines the proposals Islington’s Unitary Development Plan, which was ■■ PPG 13: Transport (2001) 2.6.9 As noted in paragraph 2.5.1, the site is located in detail against the policies and other material within the CAZ. The Mayor’s objectives for the CAZ adopted in 2002. This is supported by a number of ■■ PPG 5: Planning for the Historic Environment consideration relevant in the determination of are to ensure adequate capacity to sustain further supplementary planning guidance notes. (2010) this Planning and Conservation Area Consent growth, to harness the opportunities that it offers for 2.6.14 In response to the requirements of the new planning application. ■■ PPG16: Archaeology and Planning (1990) Londoners and the rest of the Country to secure and system the Council have prepared a first review of enhance its unique environment and attractiveness. ■■ PPS 22: Renewable Energy (2004) the Local Development Scheme, which sets out the

100 City Road Planning, Design & Access Statement ©TIBBALDS AUGUST 2010 20 3 Analysis, concept & designIntroduction evolution

Planning, Design and Access Statement 3 & 10 Finsbury Square 21 ■■ The configuration of the site.The site 3.1.2 In addition to these physical factors other relevant 3.1 Summary of site analysis 5. The positioning of the most significant today has been heavily influenced by the factors include: commercial office space fronting onto the 3.1.1 The previous section identified a number of key implementation of Old Street roundabout. Up ■■ The conclusions reached in respect of the roundabout (F). until the 1960s the site comprised an orthogonal physical and townscape factors that together have previous appeal and the comments of the plot, fronted by continuous development. The 6. The positioning of the tallest building fronting helped to shape and inform the current application Inspector (see section 2). proposals. These factors may be summarised as implementation of the roundabout scheme onto the roundabout, reinforcing the gateway follows: removed the north-east corner of the site, ■■ The fact that there is now potential flexibility function of this nodal site (E). fragmenting the existing urban form (Figures with regards the lease and vacant posession ■■ The role and function of Old Street 7. The introduction of a series of smaller scale 2.4 - 2.7). The construction of Transworld House of 210 Old Street, and therefore the possibility roundabout, located at a point of mixed-use infill buildings into the spaces around on the site further reinforced the fragmented and now exists to consider a comprehensive convergence of four key strategic routes. the two retained buildings, which together help desolate quality of the roundabout. Transworld redevelopment solution for the site. The site is located in a prominent location on the to reinforce and re-define this part of the Bunhill House also has an unresolved relationship with southwest corner of Old Street roundabout. It is ■■ The prevailing planning policy context, which Fields and Finsbury Square Conservation Area its neighbours, particularly 210 Old Street. situated at the point of convergence of four key actively promotes the regeneration of such city (C & D). strategic roads that connect the City to the rest ■■ The existing land uses surrounding the fringe sites for a mix of uses. 8. The introduction of active ground floor uses and of London. It is also an important point of arrival site. Old Street, City Road and the roundabout the positioning of the entrances into the various and departure for public transport. are characterised by larger commercial office buildings to help activate and animate the public functions. The buildings on Featherstone Street ■■ The prominence and visibility of the site on realm. support a mix of smaller scale predominantly 3.2 Design concept the roundabout and location forming a key commercial office functions. In Mallow Street 9. The creation of a single off-street service point entry point into the City. The northeastern 3.2.1 In the context of these issues and influences and the uses become more mixed, with a larger on Mallow Street, which is fit for purpose and and northern frontages of the application site based on a series of meetings with LB Islington proportion of residential occupying a number which manages potential conflicts. occupy a prominent position on the roundabout. of the older, converted warehouse buildings officers Figure 3.1 provides an explanation of the key It is visible when approaching the roundabout 10. The enhancement of the public realm in Mallow located on the western side of the street. principles or ‘key moves’ that underpin the preferred from the north, east and west. The site plays an design response to the site: Street. important role in defining Old Street roundabout ■■ Open space and the quality of the pedestrian 11. Make the most of the prevailing environmental as a ‘gateway’ or entry point into the City. From environment. The area is characterised by 1. The removal of all buildings from the site apart conditions to deliver the requisite energy and the south City Road is approximately on the high volumes of traffic, poor air quality and high from 70-74 City Road and 36-37 Featherstone sustainability targets. axis with the application site. The buildings that ambient noise levels. There is little relief for the Street (A). enclose the street channel views up towards the pedestrian. Pavements are narrow along City 2. The creation of a more meaningful and roundabout and there is a sense of anticipation Road; pinch points exist at the station exits onto accessible public open space at the heart of the that there should be something of significance at City Road; the quality of materials is poor; there development (B). the end of the route. are high levels of street clutter and Featherstone and Mallow Streets are heavily serviced. 3. The integration of this open space into the ■■ The existing townscape character. The

existing townscape character is mixed and The implementation of the ‘Promenade of Light’ existing pedestrian network and the widening of reflects the intensity of recent growth and on the northern side of Old Street has, however existing pavements (B). regeneration activity. This diversity is prevalent had a significant impact on the quality of the 4. The introduction of a coherent city block, which in the four streets surrounding the site, which pedestrian experience. addresses the Old Street roundabout frontage range from larger scale City buildings that front ■■ The character and appearance of this part in a more robust and positive manner than the the roundabout to the smaller scale and more of the Bunhill Fields/ Finsbury Square existing Transworld House (F). intimate Featherstone and Mallow streets that Conservation Area and the contribution comprise a mix of narrow frontage commercial, the existing buildings on the site make to this workshop/ warehouse and residential buildings, character (see Historic Environment Report). which date from the mid 19th century to the present day and which adopt a variety of styles and a range of different materials.

Retain buildings of merit Create meaningful public realm at heart of development Infill city ‘blocks’ around retained buildings

D E F

Lower rise office blocks including retained buildings re-define Conservation Area Establish city ‘block ‘on Old St roundabout Taller office block creates gateway building & re-defines roundabout Figure 3.1: Key moves

©TIBBALDS AUGUST 2010 100 City Road Planning, Design & Access Statement 23 3.2.2 The preferred development concept represents the 3.2.5 As a result of these processes the preferred 3.2.10 The siting of the space and the associated cross output from a highly interactive consultation process redevelopment concept is considered to respond routes will also provide the opportunity to visually involving Derwent London, the design team and LBI positively to the constraints and opportunities differentiate the two parts of the development and officers. presented by the site and based on the various reinforce the relationship each part of the scheme comments and the prevailing commercial has with its immediate context i.e. the larger 3.2.3 A total of eight workshops and a site visit have been considerations represents the optimum building to the north associated with the city scale held with LBI officers over the last 18-month period. development solution for the site and its surrounding development of the roundabout and the retained These meetings have addressed a whole variety of context. and smaller scale infill buildings to the south, which detailed issues including: have more to do with the more intimate and fine 3.2.6 The proposals acknowledge the site’s location at a ■■ The proposed land use mix and its disposition grained character of the southern part of Mallow key junction adjoining two strategic arterial routes across the site. Street and Featherstone Street. and a significant transport node with a tall building, ■■ The loss of 210 Old Street. which is comparable in height to the other buildings 3.2.11 The range of proposed land uses and their ■■ The layout and massing of the proposed in the vicinity. The replacement building addresses disposition also respond in an appropriate manner development. the roundabout in a positive manner, providing a to the established character of the area. The larger continuous and coherent frontage. It creates a new commercial office building, designed to attract ■■ The approach to the treatment of the ground landmark that will enhance legibility and provide Old more significant corporate tenants fronts onto the floors and the pedestrian entrances. Street with a strong visual marker. roundabout, smaller scale office accommodation designed to attract a range of small to medium sized ■■ The treatment of the public courtyard and 3.2.7 To the south of the site the retention of 70-74 City companies front onto Old Street and Featherstone the provision of amenity/ play space for the Road and 36-37 Featherstone Street and the Street and residential fronting onto Mallow Street. proposed residential. introduction of smaller scale infill buildings respond Retail and restaurant uses are sited fronting onto ■■ The service access arrangements onto Mallow positively to the character and appearance of City Road in order to capture footfall. Street. this part of the conservation area and will help to respond positively to the link with the remainder of 3.2.12 All servicing and drop-off will take place off-street ■■ The external appearance of the buildings and the the Conservation area, which extends across City from a new purpose built service area located on treatment of the facades. Road and into Leonard Street. Mallow Street. This access together with proposed ■■ Access, social inclusion and safety. improvements to Mallow Street will provide an 3.2.8 The proposed public courtyard at the heart of the opportunity to significantly enhance the character, ■■ The proposed sustainability strategy and the development has the potential to provide a welcome appearance and operation of this street. energy performance of each building. respite to the noise and pollution associated with the roundabout, City Road and Old Street. New ground 3.2.13 Having identified the spatial principles that underpin ■■ The impact of the proposals on designated floor retail, restaurant and café uses and entrances the scheme and the process that has helped to heritage assets. into the buildings will help to animate the space. The evolve these principles the next section considers ■■ The environmental and amenity impacts of restaurant and café uses will be allowed to spill out the development proposals in detail. the proposals and the proposed mitigation into the courtyard, further enhancing the vitality of measures. the space

3.2.4 The process has also been informed by input from 3.2.9 The cutting back of the main commercial building the GLA provided at a pre-application meeting held and the arrangement of the east west link will ensure on 16th July 2010 and a public exhibition held on the views from the streets surrounding the development 28th and 29th July 2010. into the space are maximised.