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8 Albert Embankment, Vauxhall planning report PDU/1414b/01 23 February 2011 8 Albert Embankment, Vauxhall in the London Borough of Lambeth planning application no. 10/04473/FUL Strategic planning application stage 1 referral (new powers) Town & Country Planning Act 1990 (as amended); Greater London Authority Acts 1999 and 2007; Town & Country Planning (Mayor of London) Order 2008 The proposal Refurbishment and extension of the Grade II listed fire station and the construction of seven new buildings to rear, ranging in height from 5 to 15-storeys to contain a mixed-use development comprising a new fire station, 293 residential units, 5,000 sq.m. of class B1 floor space, retail uses, parking, with associated public realm and landscaping works. The applicant The applicant is Albert Embankment LLP, and the architect is Liftshutz Davidson Sandilands. Strategic issues The principle of a residential-led mixed-use development in the Vauxhall/Nine Elms Opportunity Area is in the interest of good strategic planning in London. However, concern is raised over the design of buildings D and F. Further information is also required on access, affordable housing, children’s play space, climate change and transport to ensure compliance with London Plan policies. Recommendation That Lambeth Council be advised that the application does not comply with the London Plan, for the reasons set out in paragraph 115 of this report; but that the possible remedies set out in paragraph 117 of this report could address these deficiencies. Context 1 On 27 January 2011 the Mayor of London received documents from Lambeth 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 9 March 2011 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. page 1 2 For this application the Mayor has delegated his planning function to Sir Simon Milton, Deputy Mayor and Chief of Staff. This report sets out information for the Deputy Mayor’s use in deciding what decision to make. 3 The application is referable under the following Schedules to the Order 2008: - Category 1A ”Development which comprises or includes the provision of 150 houses, flats, or house and flats”. - Category 1B “Development which comprises or includes the erection of a building or buildings in central London and with a total floorspace of more than 20,000 sq.m.” - Category 1C “Development which comprises or includes the erection of a building more than 25 metres high adjacent to the River Thames and a building more than 30 metres high outside the City of London.” - Category 3E “Development which does not accord with one of more provisions of the development plan in force in the area in which the application site is situated; and comprises or includes more than 2,500 sq.m. of retail (A1-A5), business (B1) and non-residential institutions (D1) floorspace.” - Category 4 “Development in respect of which the local planning authority is required to consult the Mayor by virtue of a direction given by the Secretary of State under article 10(3) of the GDPO (in this instance the development exceeds the threshold plane for the Background Assessment Area of Protected Vistas 2A.2, 2B.1 and 4A.2). 4 Once Lambeth 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. 5 The Deputy Mayor of London’s statement on this case will be made available on the GLA website www.london.gov.uk. Site description 6 The application site is made up of three parcels of land that stretch west to east from the Albert Embankment to Newport Street. The front site is bounded to the south by Black Prince Road, to the east by Lambeth High Street and to the west by the A3036 Albert Embankment, which is part of the Transport for London road network. The middle site is located directly to the east of the front site, on the opposite side of Lambeth High Street and the third site is located on the junction of Black Prince Road and Newport Street on the eastern side of the railway viaduct. 7 The site is owned by the London Fire Brigade, which continues to operate from the Grade II listed building that fronts Albert Embankment. This building, constructed in 1937, has been the subject of extensions and alterations, including a basement and ground floor wing constructed in the 1970’s. Adjoining this is a listed drill tower, and beyond that, the second parcel of land fronting Lambeth High Street contains a four-storey office block with two storey workshop buildings behind it. The third site is a hard standing area used for informal parking by the fire brigade. The total site covers an area of approximately 1.2 hectares. 8 The wider area is made up of a mixture of medium to high-density residential buildings, hotels, office and industrial units. Of note is Southbank House, a Grade II listed building to the south of the middle site, which was previously the head office of the former Doulton Lambeth Pottery works and features an ornate corner tower. page 2 9 The site has a public transport accessibility level of 6a, on a scale of 1 to 6 where 6 is most accessible. The site is in close proximity to the Vauxhall transport interchange, providing mainline rail, Victoria line Underground services, and numerous bus connections. Figure 1: Aerial view of site (source: submitted Design and Access Statement) Details of the proposal 10 The scheme proposes refurbishment and extension of the Grade II listed fire station building fronting Albert Embankment, to contain a new fire station and associated functions for the London Fire Brigade on part basement and ground floors of 8 Albert Embankment, with 90 residential flats above. The adjoining drill tower would be refurbished for fire brigade use. 11 To the rear, a series of seven buildings, ranging in height from five to fifteen storeys would be constructed for mixed-use purposes, including residential, offices, studio workshops, retail and other business floor space. 12 In total, the scheme entails 2,721 sq.m. of fire station floor space, together with 4,919 sq.m. of commercial floor space, 639 sq.m. retail space, and 293 residential units. 13 Listed building and conservation area consent are also being sought from the Council. Figure 1: proposed building heights with previous scheme in orange (source: submitted Design and Access Statement) page 3 Case history 14 This planning application is a revised scheme, following a previous planning application and pre-application discussions held in 2009 and 2010. The previous application was referred to the GLA in March 2010, whereby concerns were raised by the Deputy Mayor in relation to the height and location of some of the buildings, the affordable housing offer, children’s play space, inclusive design, energy and transport. Following the recommendation by the Council that the application be refused, and advice that the Deputy Mayor was content for the Council to determine the case itself, the applicant chose to withdraw the application before the decision was issued. 15 There have not been any pre-application meetings prior to the submission of the current application but a series of pre-application meetings were held in relation to the previous application, including a presentation by the applicant to the Mayor and Deputy Mayor in September 2009. Strategic planning issues and relevant policies and guidance 16 The relevant issues and corresponding policies are as follows: Principle of development London Plan; PPS1 Density London Plan; PPS3; Housing SPG; draft revised interim Housing SPG Housing London Plan; PPS3; Housing SPG; Providing for Children and Young People’s Play and Informal Recreation SPG, Housing Strategy; Interim Housing SPG; Housing SPG EiP draft Density London Plan; PPS3; Housing SPG; Interim Housing SPG; Housing SPG EiP draft Tall buildings/views London Plan; RPG3A, London Plan; RPG3A, Revised View Management Framework SPG Urban design London Plan; PPS1 Historic Environment London Plan; PPS5 Ambient noise London Plan; the Mayor’s Ambient Noise Strategy; PPG24 Child play space London Plan; Providing for Children and Young People’s Play and Informal Recreation SPG Inclusive design and access London Plan; PPS1; Accessible London: achieving an inclusive environment SPG; Planning and Access for Disabled People: a good practice guide (ODPM) Sustainable development London Plan; PPS1, PPS1 supplement; PPS3; PPG13; PPS22; draft PPS Planning for a Low Carbon Future in a Changing Climate; the Mayor’s Energy Strategy; Mayor’s draft Climate Change Mitigation and Adaptation Strategies; Mayor’s draft Water Strategy; Sustainable Design and Construction SPG Transport London Plan; the Mayor’s Transport Strategy; PPG13 Crossrail draft London Plan Alteration; draft Crossrail SPG; Vauxhall/Nine Elms. Battersea Opportunity Area Planning Framework 17 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 Lambeth Unitary Development Plan 2007, the adopted Lambeth Core Strategy and the London Plan (Consolidated with Alterations since 2004). 18 The draft replacement London Plan, published in October 2009 for consultation is a relevant material consideration, together with the Vauxhall Nine Elms Battersea Opportunity Area Planning Framework (consultation draft, 2009). page 4 The Vauxhall Nine Elms Battersea Opportunity Area Planning Framework 19 The consultation draft Vauxhall-Nine Elms-Battersea (VNEB) Opportunity Area Planning Framework (hereafter referred to as “the OAPF”) was published in November 2009 and is also a material consideration.
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