planning report D&P/1995d/01 5 December 2016 10 Bank Street, , Isle of Dogs in the Borough of Tower Hamlets planning application no. PA/16/02956

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 Construction of a building of 166m AOD (32 storeys) comprising 124,734sqm (GIA) of office (Use Class B1) and 293sqm (GIA) of retail (Use Class A1-A5) along with a decked promenade to the West India Dock South, access and highways works, landscaping and other associated works.

The applicant The applicant is Ltd (), the planning agent is DP9 and the architect is KPF.

Strategic issues summary Isle of Dogs & South Poplar Opportunity Area: The provision of a significant quantum of large floorplate office space would make a welcome contribution towards the Opportunity Area employment targets and strengthen the strategically important Canary Wharf financial centre, as well as enhancing London’s world city status, which is strongly supported. (paragraphs 14-16) Urban design and Blue Ribbon Network: The design approach is supported. The scheme would improve public access and increase activity to the dockside promenade, which is considered to outweigh the additional encroachment into the dock. (paragraphs 17-23) Transport: contributions of circa £24 million towards Crossrail and £120,000 towards cycle hire are required. (paragraphs 27-33)

Recommendation That Tower Hamlets Council be advised that the principle of the proposal is strongly supported and the application complies fully with the London Plan, subject to the resolution of the issues set out in paragraph 37 of this report.

page 1 Context

1 On 24 October 2016 the Mayor of London received documents from Tower Hamlets Council 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 has until 5 December 2016 to provide the Council with a statement setting out whether he considers that the application complies with the 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 the following Categories of the Schedule to the Order 2008:

 Category 1B: “Development (other than development which only comprises the provision of houses, flats, or houses and flats) which comprises or includes the erection of buildings outside Central London and with a total floorspace of more than 15,000 square metres.”

 Category 1C: “Development which comprises or includes the erection of a building more than thirty metres high and outside the City of London.”

3 Once Tower Hamlets Council 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 Mayor of London’s statement on this case will be made available on the GLA website www.london.gov.uk. Site description

5 The site is located in the northern part of the Isle of Dogs, within the Canary Wharf Estate on the south side of Bank Street, between Middle Dock and South Dock. The site comprises land that was formerly occupied by low rise business units as well as part of South Dock, which would be infilled as part of the proposal. A canal runs along the eastern boundary connecting the two docks. The site is located between 1 Bank Street (under construction) and 20 Bank Street office buildings, within the main Canary Wharf cluster.

6 The site is within the Isle of Dogs and South Poplar Opportunity Area, as identified in the London Plan. The north of the Isle of Dogs is also functionally related to, but geographically distinct from, the Central Activities Zone (CAZ) for the purposes of the London Plan. Locally, the site is within Canary Wharf Major Centre and Preferred Office Location (POL), whilst South Dock is designated as a Site of Importance for Nature Conservation (SINC).

7 In terms of the historic environment, the site does not fall within a conservation area but nearby conservation areas include Narrow Street and West India Dock some 300 metres to the north. The Grade I listed quay wall, copings and buttresses along the south edge of Middle Dock runs close to the northern red line boundary of the site. The development would also be within the wider setting of the Maritime Greenwich World Heritage Site, as well as a number of other strategic views as set out in the Mayor’s London View Management Framework SPG.

8 The nearest section of the Transport for London Road Network (TLRN) is the A1203 Limehouse Link tunnel, approximately 550 metres northwest of the site. Heron Quays Docklands Light Railway (DLR) station and Canary Wharf London Underground station (Jubilee Line) are 50 metres and 150 metres to the east of the site respectively. Canary Wharf Crossrail station, 450 metres to the northeast, is currently under construction, with services due to begin in December 2018. Five bus routes (135,

page 2 277, D3, D7 and D8) operate within 450 metres of the site. The site is also accessible via the Thames Clipper service from the at . The Public Transport Accessibility Level (PTAL) of the site is excellent and rated at 6a out of a range of 1-6 (where 1 represents the lowest accessibility level and 6 the highest).

Details of the proposal

9 An office-led mixed use development is proposed, comprising circa 100,000 sq.m. (gross internal area) of large floorplate B1 space to suit the needs of the financial services sector, along with circa 20,000 sq.m. of ancillary areas and 4,355 sq.m. of amenity space. Small scale ground floor retail uses (Use Class A1-A5) are also proposed along with a decked promenade over South Dock, linking in to the neighbouring scheme at 1 Bank Street. Internal atrium amenity spaces are proposed for the office workers, with large reception and ‘meet and greet’ spaces at ground floor. Parking, cycle storage and servicing would be located within the basement and accessed from Bank Street via a shared ramp with the adjacent building. The building would be 32 storeys (166 metres) high and would be largely glazed with metal fins. Improvements are also proposed to the public realm around the building. Case history

10 There is extensive planning history dating back to 2008 for office-led development (GLA reference PDU/1995), including most recently a 2014 reserved matters approval for a 26 storey building on the site comprising 105,170 sq.m. (gross internal area) office space. This approval does not meet the needs of the current office market in Canary Wharf with the purpose of this application being to increase the size of the office floorplates and the overall quantum of accommodation in response to market requirements. This necessitates some additional encroachment into South Dock, as well as an increase in height and scale.

11 The application considered here was subject to formal pre-application discussions with GLA officers, with a pre-application meeting being held on 8 June 2016. GLA officers strongly supported the principle of the proposed redevelopment of this site to include a significant quantum of office space. Strategic planning issues and relevant policies and guidance

12 The relevant issues and corresponding policies are as follows:

 Land use principles London Plan; Central Activities Zone SPG  Urban design London Plan; Character and Context SPG  Tall buildings and heritage London Plan; London View management framework SPG, Character and Context SPG, World Heritage Sites SPG  Inclusive design London Plan; Accessible London: achieving an inclusive environment SPG;  Sustainable development 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 and parking London Plan; the Mayor’s Transport Strategy;  Crossrail/CIL London Plan; Mayoral Community Infrastructure Levy; Crossrail SPG.

13 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 Tower Hamlets Core Strategy (2010) and Managing Development Document (2013), as well as the London Plan (Consolidated with Alterations since

page 3 2011). The Tower Hamlets Draft Local Plan (November 2016) is also relevant. The National Planning Policy Framework and Technical Guide to the National Planning Policy Framework, are also relevant material considerations. Land use principle

14 The principle of an office-led development on this site has been established through the extensive planning history. The provision of an increased quantum of office floorspace to meet current market requirements is fully in accordance with London Plan policy, which identifies the north of the Isle of Dogs as a strategically important, globally oriented financial and business service centre. The scheme would generate around 6,770 jobs (an increase of 840 from the previous consent), which would make a significant contribution towards the minimum strategic job creation target of 110,000 new jobs in the Isle of Dogs and South Poplar Opportunity Area. The small scale retail uses would animate the public realm and would be appropriate to the town centre location. The proposed uses are therefore strongly supported.

15 It is noted that London Plan Policies 2.11 (CAZ strategic functions) and 4.3 (mixed use development and offices) require increases in office floorspace to provide for a mix of uses, including housing, unless such a mix would conflict with other policies. However, the London Plan also recognises that exceptions to this can be permitted where mixed uses might compromise broader objectives, such as sustaining important clusters of business activity, such as Canary Wharf. In these circumstances, contributions to off-site affordable housing provision should be secured.

16 The scheme will make a significant S106 contribution towards the delivery of strategic infrastructure with a large contribution towards Crossrail of around £24 million required by the Mayor’s SPG. In accordance with London Plan Policy 8.2, funding of Crossrail is, alongside affordable housing, given the highest strategic importance for planning obligations. It is noted that the assessment of previous applications for this site have recognised the significant contributions made towards other infrastructure and accepted that no contributions towards housing are required. It is anticipated that the sums for this scheme will be similar, if not higher, than those previously agreed. Subject to these contributions being secured by the Council through the S106 agreement, a contribution towards off site affordable housing will therefore not be required in this instance. Urban design and the Blue Ribbon Network

Layout, Blue Ribbon Network and public realm

17 The proposal seeks to increase the size of the office floorplates consented through the 2014 reserved matters application to respond to market demand for larger trading floors. This necessitates a larger building footprint and as such a greater encroachment into South Dock is proposed than previously approved. Whilst development on the Blue Ribbon Network is contrary to London Plan policy, the principle has been accepted as part of previous applications for the redevelopment of this site, in recognition of the strategic importance of Canary Wharf as a globally important financial and business centre. The additional encroachment amounts to 4 metres, although the basement line would remain as consented. This would have the benefit of unifying the dockside building line with the adjacent building at 1 Bank Street and aligning the decked promenade. This amendment, along with the additional active ground floor retail uses, is strongly supported in urban design terms and the inclusion of lowered seating areas further enhances the quality and usability of this public route.

18 The route leading up to Bank Street along the eastern side of the building is constrained by the projection of the ground floor lobby, which reduces visibility and legibility. The applicant has responded positively in pre-application discussions, and pulled back the building line behind the pillars, thereby increasing the width of this route and extended seating areas so that it appears a usable and active route. Whilst it remains preferable for this to be set back further, it is recognised

page 4 that there is a requirement to deliver a large lobby area to suit the requirements of the market. The resultant design is therefore acceptable and raises no strategic concern.

19 In response to comments made by the Council, the applicant has investigated adding a pedestrian footbridge over the connecting canal between Middle Dock and South Dock, linking the scheme to the promenade around 20 Bank Street. Any link would be problematic mainly due to the levels difference between the promenades, which would necessitate a sloped design that would detract considerably from the quality of the proposed public realm, the functioning of the ground floor and activation of the dockside. GLA officers also question the desirability of this link. Furthermore, the Canal and River Trust, who has no objection to the submitted application, has indicated in its initial comments that a link could raise concerns if it is subsequently incorporated into the proposal. Accordingly, it has been demonstrated that the bridge is not feasible and GLA officers would not support its addition.

20 Overall, the improved ground floor layout, particularly the promenade and active dockside route on the southern boundary, along with the provision of large floorplate office space in the north of the Isle of Dogs, would outweigh the additional encroachment into the Blue Ribbon Network. The revised ground floor layout significantly improves the level of active frontage along the promenade compared to the previous consent, through additional retail and cafe uses to serve the local office population. This route has the potential to be well used throughout the day, providing an alternative pedestrian link between Marsh Wall and Canary Wharf, as well as south facing cafe spill out space, which is strongly supported. There would also be enhanced biodiversity measures that should be secured by condition or S106 agreement.

Height, heritage and strategic views

21 Given the extant consent and the emerging cluster of tall buildings in this part of the Isle of Dogs, the scale of the proposal is acceptable. The Townscape, Visual Impact and Built Heritage Assessment demonstrates that the building is largely obscured by other existing and consented developments in key strategic views such as London View Management Framework (LVMF) views 5A.1 from Greenwich Park and 11B.1 and 11B.2 from London Bridge.

22 Furthermore there would be no harm to the setting of the Maritime Greenwich World Heritage Site or any other heritage assets as a result of the development. It is not proposed to make any alterations to the listed dockside quay wall of Middle Dock, as this falls outside of the site boundary, and there would therefore be no harm to this heritage asset as a result of the proposal. The proposal therefore complies with London Plan Policy 7.8 and the NPPF.

Architectural treatment

23 The mass of the building would be broken down by dividing the structure into three volumes and stepping the height to respond to the adjacent context to the east and west. A sweeping eastern facade would complement the approved building at 1 Bank Street and add visual interest. The central element would comprise the atrium spaces and amenity at upper levels and would be glazed, whilst the side volumes would contrast with fin features to add texture. Extensive curtain wall glazing is proposed at ground floor. The architectural approach is supported and should result in a high quality finish. The quality of materials and detailing will however be essential to achieving this and the facade design detail set out in the Design & Access Statement is welcomed. The Council should ensure that detailing and materials are secured by condition.

page 5 Climate change

24 A range of energy efficiency measures are proposed. The applicant has also demonstrated that the cooling demand of the actual building is lower than the notional and that there is no issue with solar gains entering the building, which is welcomed.

25 The development will be designed to enable future connection to the Barkantine district heating network, but a connection is not possible at this time. The applicant should provide a breakdown of the estimated costs associated with such a connection with details on capacity. The applicant is proposing to install a site heat network linking both offices and retail spaces. A drawing showing the route of the heat network linking all areas on the site should be provided, along with details of plant room design. The provision of rooftop photovoltaic panels is welcomed and the submitted plan demonstrates that this has been maximised.

26 Overall the measures proposed result in a 33.5% reduction in regulated carbon dioxide emissions compared to a 2013 Building Regulations compliant development. This falls short of the London Plan and Tower Hamlets Council’s emission targets. However, whilst the above comments should be addressed to verify the stated savings, it is accepted that there is little further potential for carbon dioxide reductions on site. The applicant should therefore ensure, through a S106 contribution, that the shortfall is met off-site. Transport

27 The Transport Assessment (TA) methodology is consistent with the approach taken in the previous outline permission, with appropriate adjustments made to take into account Crossrail. The reduction in car parking from 107 to 25 spaces is supported, and the provision of electric vehicle charging points and Blue Badge spaces should be secured by condition.

28 The development is forecast to generate 180 trip arrivals at Heron Quays Station from the southern branch of the DLR in the morning peak hour. Although this is lower than the previous scheme due to the inclusion of Crossrail trips, this branch already experiences very heavy usage (93% capacity in sections of the route in the morning peak) and these additional trips are therefore a concern. The impact should be assessed and mitigated where necessary.

29 The TA forecasts 20,586 additional walking trips each day from the development and a pedestrian environment reviews survey (PERS) has been carried out. The Council should secure improvements where these are identified and the applicant should provide details of proposed wayfinding measures that are consistent with the approach taken on the rest of the Canary Wharf Estate.

30 The applicant has increased cycle parking following pre-application discussions, which is supported. However, a cycle hire docking station for 36 cycles is required to reflect the site specific increase in demand. A contribution of £120,000 should therefore be secured through the S106 agreement to provide a new docking station within 1km of the site.

31 All servicing will take place off street, which is welcomed, although there are concerns that the proposed loading bay capacity would not be adequate. If it is not possible to accommodate an additional loading bay within the scheme, the applicant should demonstrate that deliveries can be managed satisfactorily.

32 The applicant has submitted a construction logistics plan and framework travel plan, the principles of which are supported. These should be secured through condition and/or S106 agreement.

page 6 33 The mechanism for contributions to be made payable towards Crossrail has been set out in the Mayor’s Supplementary Planning Guidance (SPG) ‘Use of planning obligations in the funding of Crossrail and the Mayoral Community Infrastructure Levy’ (March 2016) and London Plan Policies 6.5 and 8.3. The SPG states that contributions should be sought in respect of uplift in floorspace for B1 office, hotel and retail uses (with an uplift of at least 500sq.m.) in locations such as the northern part of Isle of Dogs. Based on the floorspace figures provided by the applicant, it is estimated that the Crossrail S106 contribution will be around £24 million, however the actual figure is to be confirmed by the London Borough of Tower Hamlets for inclusion in the S106 agreement. Local planning authority’s position

34 The Council are broadly supportive of the scale and massing of the scheme, but are seeking further clarifications on other aspects such as public realm quality. Legal considerations

35 Under the arrangements set out in Article 4 of the Town and Country Planning (Mayor of London) Order 2008 the Mayor is required to provide the local planning authority with a statement setting out whether he considers that the application complies with the London Plan, and his reasons for taking that view. Unless notified otherwise by the Mayor, the Council must consult the Mayor again under Article 5 of the Order if it subsequently resolves to make a draft decision on the application, in order that the Mayor may decide whether to allow the draft decision to proceed unchanged, or direct the Council under Article 6 of the Order to refuse the application, or issue a direction under Article 7 of the Order that he is to act as the local planning authority for the purpose of determining the application and any connected application. There is no obligation at this present stage for the Mayor to indicate his intentions regarding a possible direction, and no such decision should be inferred from the Mayor’s statement and comments. Financial considerations

36 There are no financial considerations at this stage. Conclusion

37 The proposal to provide a significant quantum of large floorplate office accommodation to support the strategically important financial services cluster in the north of the Isle of Dogs & South Poplar Opportunity Area is strongly supported. The design approach is well-considered and supported and the additional encroachment into the dock is acceptable. Whilst the application broadly complies with the London Plan, a number of outstanding matters need to be addressed with regard to climate change and transport:

 Climate change mitigation: the energy strategy does not fully accord with London Plan Policies 5.2 and 5.6. Further information regarding connection to the Barkantine heat network and the on-site heat network is required. The final agreed energy strategy should be appropriately secured by the Council by condition and a contribution towards off-site measures should be secured through the S106 agreement.

 Transport: to ensure that the scheme accords with London Plan policies 6.1, 6.2, 6.3, 6.5, 6.7, 6.9, 6.10 and 6.13 the applicant should make a contribution of £120,000 towards cycle hire and a contribution of circa £24,000,000 towards Crossrail. Further modelling of DLR trips is required and the applicant should demonstrate that servicing can be carried out off street. A delivery and servicing plan, travel plan and construction logistics plan should also be secured through Section 106 agreement or conditions as appropriate.

page 7

for further information, contact GLA Planning Unit (Development & Projects Team): Colin Wilson, Senior Manager – Development & Projects 020 7983 4783 email [email protected] Sarah Considine, Strategic Planning Manager (Development Decisions) 020 7983 5751 email [email protected] Nick Ray, Senior Strategic Planner, case officer 020 7983 4178 email [email protected]

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