Committee PLANNING COMMITTEE B Report Title Railway Station Ward Contributors Michael Forrester Class PART 1 24 March 2015

Reg. Nos. (A) DC/14/86046 – Planning Permission (B) DC/14/86271 – Listed Building Consent

Application dated 30.12.2013 (revised)

Applicant Network Rail Infrastructure Ltd

Proposal Planning Permission and Listed Building Consent for the installation of four partially glazed retail frontages, internal lining and associated lining and drainage facilities to convert four unused railway arches into A1 retail units.

Applicant’s Plan Nos. 440403-B-311, 440403/S/01 B, 4952/W/16, 4952/W/16, 4952/W/18, ALUPANEL XT Series: Architectural Design Solutions, Location plan, Deptford Redline, Heritage Impact Assessment, Architectural Design Solutions all received 30/12/2013. Design and Access Statement, 440403-B-131 rev A, 440403-B-330 rev B, 440403-B-430 rev D, 440403-B-130 all received 20/03/2015.

Background Papers (1) Case File DE/156/139A/TP (2) Local Development Framework Documents (3) The Plan

Designation [Core Strategy, Site Allocations Local Plan or Town Centre Local Plan] – District Centre

1.0 Property/Site Description

1.1 The site comprises railway arches within the viaduct that form part of Deptford Railway Station. The four arches open out onto the southern side of the viaduct, with the rear north facing opening enclosed by other buildings on Deptford High Street.

1.2 The arches form part of the Grade II listed viaduct and platforms, the adjacent carriage ramp is separately listed Grade II. The site is included as part of the Deptford High Street Conservation Area.

1.3 Deptford Station provides mainline access to London Cannon Street and to Kent via .

1.4 The arches are currently vacant, and enclosed by a projected hoarding from the viaduct.

2.0 Planning History

2.1 Planning Permission and Listed Building Consent were given under application reference No. DC/08/69221 for the construction of a new station building with refurbishment of the carriage ramp, viaduct and platforms. This is now completed and the station is in use.

2.2 There are various other planning history at Deptford Railway station that includes provision of CCTV, readers and fencing, however, these are of no relevance to this application.

2.3 Applications for Planning Permission and Listed Building Consent for the change of use of the arches, with installation of Shopfronts and internal lining were withdrawn on the 30/07/2013 under application references DC/12/81959 and DC/12/81960.

3.0 Current Planning Applications

The Proposals

3.1 Planning permission and Listed Building Consent are sought for the change of use of 4 arches beneath Deptford Railway Station for use as A1 retail spaces, with the installation of Shopfronts a rear infill extension to arches 131 and 132 and internal lining of all four arches with profiled aluminium sheets, fixed to brackets.

3.2 Arch 130 is the smallest and measures 31.2 sqm, Arch 131 measures 111.9 sqm, Arch 132 measures 99.5 sqm, whilst Arch 133 measures 92.4 sqm.

3.3 The Shopfronts would be recessed back into the arch by 0.6m except for Arch 130 which is recessed 0.2m.

Supporting Documents

3.4 Design and Access Statement (revised document) – This provides a site description and details the requirement to line the interior of the arches. Details of the proposed shopfront including a reasoning behind the proposed materials are also included.

3.5 Heritage Impact Assessment – This document provides a description of the heritage significance of the viaduct and adjacent listed structures, including the carriage ramp.

4.0 Consultation

4.1 This section outlines the consultation carried out by the Council following the submission of the application and summarises the responses received. The Council’s consultation exceeded the minimum statutory requirements and those required by the Council’s adopted Statement of Community Involvement.

4.2 Site notices were displayed and letters were sent to residents and business in the surrounding area and the relevant ward Councillors. English Heritage were consulted of the application.

Pre-Application Consultation

4.3 Notification letters were sent to properties and local ward councillors on the 23 rd May 2014. Site notices were also displayed outside of the site.

4.4 As a result of revised plans that were submitted, neighbours were re-consulted on the 4 th March 2015. No representations have been received.

Written Responses received from Local Residents and Organisations

4.5 3 objections were received, these are summarised below:

- The brickwork should be retained inside of the arches, lining them will spoil the interior design, and their retention will make them more pleasant for customers and more lucrative for retailers and the landlord

- Greater considerations need to be given to waterproofing of the arches. As this system of lining is more suited to industrial units.

- Form of internal lining material will impact upon the geometry and cosmetic ceiling treatment.

- Drawings are unclear.

- Use of mock timber panelling is unsympathetic for this listed structure.

- Details submitted are unclear and should be secured now.

- Entry doors are not detailed enough.

- Drawings submitted do not accord with the CGI’s produced by the applicant, and this is misleading. As these show a frameless glazing system which is preferable.

- The units need to be designed to be practical including level floors and accessible entrances.

- Why are the units ventilated from the front? These should be positioned to the rear.

- No external lighting and the arches could benefit from lighting treatment.

- No details of signage.

- Shutter box system is unsatisfactory.

- This development needs to be of the highest quality.

Written Responses received from Statutory Agencies

4.6 English Heritage – Our specialist staff have considered the information received and we do not wish to offer any comments on this occasion. This application should be determined in accordance with national and local policy guidance, and on the basis of your specialist conservation advice.

5.0 Policy Context

Introduction

5.1 Section 70(2) of the Town and Country Planning Act 1990 (as amended) sets out that in considering and determining applications for planning permission the local planning authority must have regard to:-

(a) the provisions of the development plan, so far as material to the application,

(b) any local finance considerations, so far as material to the application, and

(c) any other material considerations.

A local finance consideration means:

(a) a grant or other financial assistance that has been, or will or could be, provided to a relevant authority by a Minister of the Crown, or

(b) sums that a relevant authority has received, or will or could receive, in payment of Community Infrastructure Levy (CIL)

5.2 Section 38(6) of the Planning and Compulsory Purchase Act (2004) makes it clear that ‘if regard is to be had to the development plan for the purpose of any determination to be made under the planning Acts the determination must be made in accordance with the plan unless material considerations indicate otherwise’. The development plan for Lewisham comprises the Core Strategy, the Development Management Local Plan, the Site Allocations Local Plan and the Lewisham Town Centre Local Plan, and the London Plan. The NPPF does not change the legal status of the development plan.

National Planning Policy Framework

5.3 The NPPF was published on 27 March 2012 and is a material consideration in the determination of planning applications. It contains at paragraph 14, a ‘presumption in favour of sustainable development’. Annex 1 of the NPPF provides guidance on implementation of the NPPF. In summary, this states in paragraph 211, that policies in the development plan should not be considered out of date just because they were adopted prior to the publication of the NPPF. At paragraphs 214 and 215 guidance is given on the weight to be given to policies in the development plan. As the NPPF is now more than 12 months old paragraph 215 comes into effect. This states in part that ‘…due weight should be given to relevant policies in existing plans according to their degree of consistency with this framework (the closer the policies in the plan to the policies in the Framework, the greater the weight that may be given)’.

5.4 Officers have reviewed the Core Strategy for consistency with the NPPF and consider there is no issue of significant conflict. As such, full weight can be given to these policies in the decision making process in accordance with paragraphs 211, and 215 of the NPPF.

Other National Guidance

5.5 The other relevant national guidance is:

Advertisements Conserving and enhancing the historic environment Design Ensuring effective enforcement Ensuring the vitality of town centres Flexible options for planning permissions Use of Planning Conditions

London Plan (July 2011)

5.6 On 10 March 2015 the London Plan (consolidated with alterations since 2011) was adopted. The policies relevant to this application are:

Policy 2.13 Opportunity areas and intensification areas Policy 2.14 Areas for regeneration Policy 2.15 Town centres Policy 4.1 Developing London’s economy Policy 4.3 Mixed use development and offices Policy 4.4 Managing industrial land and premises Policy 4.7 Retail and town centre development Policy 4.9 Small shops Policy 4.11 Encouraging a connected economy Policy 5.2 Minimising carbon dioxide emissions Policy 5.3 Sustainable design and construction Policy 5.7 Renewable energy Policy 7.4 Local character Policy 7.5 Public realm Policy 7.6 Architecture Policy 7.8 Heritage assets and archaeology Policy 7.9 Heritage-led regeneration

Core Strategy

5.7 The Core Strategy was adopted by the Council at its meeting on 29 June 2011. The Core Strategy, together with the Site Allocations, the Lewisham Town Centre Local Plan, the Development Management Local Plan and the London Plan is the borough's statutory development plan. The following lists the relevant strategic objectives, spatial policies and cross cutting policies from the Lewisham Core Strategy as they relate to this application:

Spatial Policy 1 Lewisham Spatial Strategy Spatial Policy 2 Regeneration and Growth Areas Core Strategy Policy 6 Retail hierarchy and location of retail development Core Strategy Policy 15 High quality design for Lewisham Core Strategy Policy 16 Conservation areas, heritage assets and the historic environment

Development Management Local Plan

5.8 The Development Management Local Plan was adopted by the Council at its meeting on 26 November 2014. The Development Management Local Plan, together with the Site Allocations, the Lewisham Town Centre Local Plan, the Core Strategy and the London Plan is the borough's statutory development plan. The following lists the relevant strategic objectives, spatial policies and cross cutting policies from the Development Management Local Plan as they relate to this application:

5.9 The following policies are considered to be relevant to this application:

DM Policy 1 Presumption in favour of sustainable development DM Policy 14 District centres shopping frontages DM Policy 19 Shopfronts, signs and hoardings DM Policy 22 Sustainable design and construction DM Policy 30 Urban design and local character DM Policy 31 Alterations/extensions to existing buildings DM Policy 34 Thames Policy Area and Deptford Creekside DM Policy 35 Public realm DM Policy 36 New development, changes of use and alterations affecting designated heritage assets and their setting: conservation areas, listed buildings, schedule of ancient monuments and registered parks and gardens DM Policy 38 Demolition or substantial harm to designated and non- designated heritage assets

Shopfront Design Guide Supplementary Planning Document (March 2006)

5.10 This document seeks to promote good design in order to enhance the character and appearance of the borough as a whole. The guide advises on the use of sensitive design and careful attention to detail and that whilst shopfront design encompasses a wide variety of styles and details there are certain basic rules that apply everywhere.

6.0 Planning Considerations

6.1 The main issues to be considered in respect of this application are:

a) Principle of Development b) Design c) Highways and Traffic Issues d) Sustainability and Energy

Principle of Development

6.2 The arches are set beneath Deptford Railway Station and prominently front onto the station forecourt. Historically they have been used for B1 and B2 industrial purposes, however, they are currently vacant and enclosed by hoarding.

6.3 DM Policy 11 Other Employment Locations seek to retain employment uses (B use classes) and states that redevelopment of a site on a commercial street

frontage will be supported when the site or building is redeveloped to a high standard of environmental and design quality. Uses not within the B use class, such as retail or other uses appropriate to a town centre or local hub will be considered as part of a mix of uses where the number of jobs created by the proposal outweighs the loss of an employment site and results in no net loss of jobs.

6.4 The units are exceptionally prominent forming part of Deptford Station and provide no public benefit or existing employment, the proposals for the re-use of these arches for A1 retail is supported as this would contribute to the regeneration of Deptford High Street and compliment the adjacent Deptford Project scheme currently under construction by the Cathedral group for mixed uses. Given the surrounding variety of uses and central location it is not considered appropriate to insist on the retention of B1/B2 use.

6.5 It is unknown at the present time as to the nature of the occupiers, however, given the size of each unit within the arches it is anticipated that a mixture of small retail uses are likely.

Design

6.6 Paragraph 63 of the National Planning Policy Framework states that ‘in determining applications, great weight should be given to outstanding or innovative designs which help raise the standard of design more generally in the area’. Whilst paragraph 64 states that ‘permission should be refused for development of poor design that fails to take the opportunities for improving the character and quality of an area and the way it functions’.

6.7 Core Strategy Policy 15 states that the Council will apply national and regional policy and guidance to ensure the highest quality design and the protection or enhancement of the historic and natural environment, which is sustainable, accessible to all, optimises the potential of sites and is sensitive to the local context and responds to local character.

6.8 The arches form part of the Grade II listed viaduct and are of historical importance. DM Policy 36 states that consent for works to listed structures will only be given where they relate sensitively to the buildings significance and sustain and enhance its significance and integrity. The proposals for the installation of shopfronts to the arches is supported in principle, as is the re-use of a historic structure.

Shopfronts and Infill Extension

6.9 DM 19 of the Development Management Local Plan states that new shopfronts should use high quality materials and a design that relates well to the proportion, scale and detailing of the entire host building and makes a positive contribution to the streetscene, roller grills and shutters should also be of an open mesh variety.

6.10 The plans initially proposed that the arches would be infilled with a central glazing panel, comprising entrance doors with side infill panels designed to appear as timber, but formed from metal, these would have projected forward of the glazing to comprise signage and ventilation panels within the reveals. Officers raised concern with the applicants that the treatment of the arches was unsympathetic, due to the projecting side panels and that the use of faux timber cladding was

unacceptable. Furthermore, concern was also raised that the submitted CGI’s showed a frames glazing system but that the drawings showed little detail.

6.11 The plans have been revised during the course of the application following extensive discussions between officers and Network Rail. This has resulted in the submission of revised plans which set the shopfronts back 0.6m into the arch in order to allow for a reveal of original brickwork. It is only the first Arch, no. 130 which has a smaller recess of 0.2m, due to the much smaller footprint of this space at 33.1 sqm, compares to a minimum of 99 sqm for the other units. It is recognised that be relocating the shopfront 0.6m into the arch would adversely impact the long term viability of the unit.

6.12 The faux timber cladding has been omitted in place of mat bronze cladding, set flush with a central glazing panel. The ventilation panels have been set higher up into the arch above a horizontal signage zone. Officers welcome the simplified approach to the shopfront and setting back into the arch to reveal the original brickwork. The frame for the glazing is considered to be acceptable with the panels arranged to emphasise the vertical nature of the arch.

6.13 The applicant has also confirmed that an open mesh roller shutter is proposed, which is acceptable and full details are recommended to be secured by condition.

6.14 It is considered that the shopfront proposals are acceptable and would contribute to providing an active frontage in this prominent part of Deptford. In order to support the simplified approach the shopfront, the applicant has submitted details at a scale of 1:10, detailing fixing, position of the glazing bars and key junctions where materials would meet. The drawings confirm that the cladding is fitted by secret fixings so that no nails or screws are visible. This is supported.

6.15 An infill rear extension is proposed to the rear of arches 131 and 132, currently this is an open void that is not publically accessible from the rear. This infill would create an enclosed space the rear of the arches creating weatherproofed units. Given the very limited scale of these works, they raise no objection.

Internal works

6.16 The floors are to be finished to create a level surface and each unit would be fitted with a toilet and wash basin located in the rear. Most significantly, the arches themselves would be lined in aluminium, concealing the original brickwork.

6.17 The applicant has stated the need for lining is due to water ingress within the arches. The Design and Access statement confirms that water ingress is generally through construction joints, through the structure including seepage from the track bed above, rising groundwater, through the infill, through thresholds and by raised external levels, through junctions with extensions and lean-to’s and through jack arches.

6.18 The construction of the arches at Deptford Station are as such that water ingress is possible into each arch. The age of the structure and lack of a waterproof membrane between the track and the inside of the arch, and general movement of the structure over time means that water ingress is unavoidable. The arches are visibly wet and damp to touch, and whilst structurally sound, the internal condition of the arches mean they do not make for viable commercial units at present, without remediation.

6.19 The applicants Design and Access statement states that Network Rails preferred approach is to not line arches due to the need for regular inspections of the brickwork, associated cost and for aesthetic reasons. However, in some circumstances the lining of arches is unavoidable. Officers have long debated the need for lining of the arches as this would result in the loss of the original brickwork. The lining of the arches has also been raised within the objections received.

6.20 The applicant has stated that the lining of the arches is required in this instance due to the nature of the track bed above which has no waterproof membrane. It is not possible to provide a membrane from below and the track bed would need to be lifted in order to do so from above. This would involve closure of the Deptford- London Bridge railway line.

6.21 The applicant has stated that whilst other railway arches retain exposed brick work, this is due to a number of varying factors, such as maintenance on the track beds when waterproofing has been possible, others are of better construction quality, others have aged better and/ or are of different designs. In this instance, adjacent arches within Resolution Way and Titan Business Estate are all lined because they are wet arches and it has not been possible to waterproof from above.

6.22 It is recognised that the lining of the arches would screen the original brickwork from view and alter the appearance of the internal void of the arch spaces and this could be considered damaging to the character and appearance of the listed building. DM Policy 38 states that ‘proposals for demolition or substantial harm to designated heritage assets will be refused unless it can be demonstrated that these are necessary to achieve substantial public benefits that outweigh the harm or loss’.

6.23 In this instance, the lining of the arches is not permanent and could be removed in the future if the track beds were lifted for example and therefore the lining of the arches cannot be considered to be substantial due its reversibility. Should the lining remain in situ for the long term, the aluminium panels are not physically fixed to the brickwork, but instead onto batons which are spaced out across the arch to limit physical intervention and minimise additional load on the structure. Furthermore, it is recognised that without lining, the spaces would be unfit for commercial occupation and remain empty which would negatively impact upon the wider character of Deptford High Street and station forecourt which links with the wider Deptford Project. Officers consider that the lining of the arches is acceptable in principle, and has been justified by the applicant. Samples of the internal lining, including colour and profile are to be secured by condition.

6.24 Other methods of waterproofing have been discussed with the applicant and they have confirmed that render finishes are not possible, neither is any material permanently fixed to the structure as these restrict inspection of the structure and also restrict the natural flow of water within the viaduct. There is evidence of some partial rendering in the arches that has taken place some years ago, however, this is now in a poor stare of repair, is discoloured and falling off the structure.

6.25 With regard to drainage and water dispersment, the arch lining of corrugated to allow the flow of water down the arch into a drainage channel at ground floor. Rather than restrict the flow of water than rendering or other lining would result in.

6.26 The proposals would bring a prominent site into public use and it is considered that the internal alterations are justified, and necessary in order to secure the practical long term use for commercial uses. The proposed shopfront is considered to be significantly improved from the original proposals and is now considered to be acceptable from a design and heritage perspective.

Highways and Traffic Issues

6.27 Access into each unit would be from the south at the station forecourt. This would also act as the point of servicing. The station forecourt acts as part of the servicing space for the proposed market at the Deptford Project and also for the arches within the carriage ramp, therefore the use of this space is considered to be acceptable. It is not considered that given the proposed retail use, size of the units and location within the railway station that the proposals would result in trip generation by vehicles and instead are most likely to attract passing trade by foot.

Impact on Adjoining Properties

6.28 The proposals for A1 retail units within these four arches is considered to be acceptable from an amenity perspective, as they are set beneath a railway station and do not directly abut residential properties. Hours of use are to be controlled by condition and are proposed to accord with those within the wider Deptford Project.

7.0 Community Infrastructure Levy

7.1 The above development is not CIL liable.

8.0 Equalities Considerations

8.1 Section 149 of the Equality Act 2010 (“the Act”) imposes a duty that the Council must, in the exercise of its functions, have due regard to:-

(a) eliminate discrimination, harassment, victimisation and any other conduct that is prohibited by or under the Act;

(b) advance equality of opportunity between persons who share a relevant protected characteristic and those who do not;

(c) foster good relations between persons who share a relevant protected characteristic and persons who do not share it.

8.2 The protected characteristics under the Act are: age, disability, gender reassignment, pregnancy and maternity, race, religion or belief, sex and sexual orientation.

8.3 The duty is a “have regard duty” and the weight to attach to it is a matter for the decision maker bearing in mind the issues of relevance and proportionality. In this matter, there is no impact upon equality.

9.0 Conclusion

9.1 This application has been considered in the light of policies set out in the development plan and other material considerations.

9.2 It is considered that the proposed use for A1 retail is acceptable as this would bring four prominent arches within the high street back into use. The proposed shopfronts are considered to be of an acceptable design, reflective of the adjacent Deptford Project and would utilise high quality materials. Further details are to be secured by way of condition.

9.3 The lining of the arches is considered to be justified and although would conceal original brickwork would significantly improve the interior condition of the arches and create viable commercial spaces.

10.0 RECOMMENDATION

GRANT PLANNING PERMISSION subject to the following conditions:-

1. Time Limit

The development to which this permission relates must be begun not later than the expiration of three years beginning with the date on which the permission is granted.

Reason: As required by Section 91 of the Town and Country Planning Act 1990.

2. Accordance with plans

The development shall be carried out strictly in accordance with the application plans, drawings and documents hereby approved and as detailed below:

440403-B-311, 440403/S/01 B, 4952/W/16, 4952/W/16, 4952/W/18, ALUPANEL XT Series: Architectural Design Solutions, Location plan, Deptford Redline, Heritage Impact Assessment, Architectural Design Solutions all received 30/12/2013.

Design and Access Statement, 440403-B-131 rev A, 440403-B-330 rev B, 440403-B-430 rev D, 440403-B-130 all received 20/03/2015.

Reason: To ensure that the development is carried out in accordance with the approved documents, plans and drawings submitted with the application and is acceptable to the local planning authority.

3. Materials

No development shall commence on site until a detailed schedule and samples of the following have been submitted to and approved in by the local planning authority. The development shall be carried out in accordance with the approved details.

- Sample of mat bronze aluminium cladding - Details of all door furniture and other shop front fittings - Sample of ventilation panels - Open mesh roller shutter

Reason: To ensure that the local planning authority may be satisfied as to the external appearance of the building(s) and to comply with Policy 15 High quality design for Lewisham of the Core Strategy (June 2011) and Development Management Local Plan (November 2014) DM Policy 30 Urban design and local character.

4. Opening Hours

The premises shall only be open for customer business between the hours of 7am and 11pm on any day of the week.

Reason : In order to safeguard the amenities of adjoining occupants at unsociable periods and to comply with Paragraph 120 of the National Planning Policy Framework and DM Policy 26 Noise and Vibration and DM Policy 14 District centres shopping frontages.

5. No external pipework

Notwithstanding the Town and Country Planning (General Permitted Development) Order 1995 (or any Order revoking, re-enacting or modifying that Order), no plumbing or pipes shall be fixed on the front elevation of the viaduct facing the station forecourt.

Reason : In order that the local planning authority may be satisfied with the details of the proposal and to accord with Policy 15 High quality design for Lewisham of the Core Strategy (June 2011) and DM Policy 30 Urban design and local character of the Development Management Local Plan (November 2014).

6. Restrict Use Class

Notwithstanding the Town and Country Planning (General Permitted Development) Order 1995 (or any Order revoking, re-enacting or modifying that Order), the premises shall be used for retail within Use Class A1 and for no other purpose.

Reason: In order to provide a mixture of retail uses in accordance with DM Policy 14 of the Development Management Local Plan (November 2014).

GRANT LISTED BUILDING CONSENT

1. Time Limit

The development to which this permission relates must be begun not later than the expiration of five years beginning with the date on which the permission is granted.

Reason: As required by Section 18 of the Planning (Listed Buildings and Conservation Areas) Act 1990.

2. Accordance with Plans

The development shall be carried out strictly in accordance with the application plans, drawings and documents hereby approved and as detailed below:

440403-B-311, 440403/S/01 B, 4952/W/16, 4952/W/16, 4952/W/18, ALUPANEL XT Series: Architectural Design Solutions, Location plan, Deptford Redline, Heritage Impact Assessment, Architectural Design Solutions all received 30/12/2013.

Design and Access Statement, 440403-B-131 rev A, 440403-B-330 rev B, 440403-B-430 rev D, 440403-B-130 all received 20/03/2015.

Reason: To ensure that the development is carried out in accordance with the approved documents, plans and drawings submitted with the application and is acceptable to the local planning authority.

3. Materials

No development shall commence on site until a detailed schedule and samples of the following have been submitted to and approved in writing by the local planning authority. The development shall be carried out in accordance with the approved details.

- Sample of profiled internal arch lining, including profile and joinery - Details of floor finishes - Internal light fittings

Reason: To ensure that the local planning authority may be satisfied as to the external appearance of the building(s) and to comply with Policy 15 High quality design for Lewisham of the Core Strategy (June 2011) and Development Management Local Plan (November 2014) DM Policy 30 Urban design and local character.

4. Interior finishes

No development shall commence on site until details of all ductwork for the ventilation system have been submitted to and approved in writing by the local planning authority. The development shall be carried out in accordance with the approved details.

Reason: To ensure that the local planning authority may be satisfied as to the internal appearance of the arches and to comply with Policy 15 High quality design for Lewisham of the Core Strategy (June 2011) and Development Management Local Plan (November 2014) DM Policy 30 Urban design and local character.

INFORMATIVES

(1) Positive and Proactive Statement: The Council engages with all applicants in a positive and proactive way through specific pre-application enquiries and the detailed advice available on the Council’s website. On this particular application, positive discussions took place which resulted in

further information being submitted, including the submission of revised drawings for the shopfront.