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Sea Containers House, Southbank planning report PDU/2738/02 26 October 2011 Sea Containers House, Southbank in the London Borough of Southwark planning application no. 11/AP/1955 Strategic planning application stage II 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 Part refurbishment and redevelopment of Sea Containers House to provide office, retail, hotel (358 bedrooms) and gym. The proposals include 29 vehicle parking spaces, 22 motorcycle parking spaces and 176 bicycle parking spaces. The applicant The applicant is Archlane Limited, and the architect is tp Bennet. Strategic issues Matters regarding CAZ functions, loss of office space, urban design, access, heritage and townscape, climate change and transport, including Crossrail have been broadly addressed. The Council’s decision In this instance Southwark Council has resolved to grant permission. Recommendation That Southwark Council be advised that the Mayor is content for it to determine the case itself, subject to any action that the Secretary of State may take, and does not therefore wish to direct refusal or direct that he is to be the local planning authority. Context 1 On 8 July 2011 the Mayor of London received documents from Southwark Council notifying him of a planning application of potential strategic importance to develop the above site for the above uses. This was referred to the Mayor under Category 1C of the Schedule to the Order 2008: “Development which comprises or includes the erection of a building with one or more of the following descriptions – a) the building is more than 25 metres high and is adjacent to the River Thames.” page 1 2 On 18 August 2011, the Mayor considered planning report PDU/2738/01, and subsequently advised Southwark Council that the application did not comply with the London Plan, for the reasons set out in paragraph 63 of the above-mentioned report; but that the possible remedies set out in paragraph 65 of that report could address these deficiencies. 3 A copy of the above-mentioned report is attached. The essentials of the case with regard to the proposal, the site, case history, strategic planning issues and relevant policies and guidance are as set out therein, unless otherwise stated in this report. Since then, the application has been revised in response to the Mayor’s concerns (see below). On 11 October 2011, Southwark Council decided that it was minded to grant planning permission and on 17 October 2011, it advised the Mayor of this decision. Under the provisions of Article 5 of the Town & Country Planning (Mayor of London) Order 2008 the Mayor may allow the draft decision to proceed unchanged, direct Southwark Council under Article 6 to refuse the application or issue a direction to Southwark Council under Article 7 that he is to act as the Local Planning Authority for the purposes of determining the application and any connected application. The Mayor has until 30 October 2011 to notify the Council of his decision and to issue any direction. 4 The decision on this case, and the reasons will be made available on the GLA’s website www.london.gov.uk. Update 5 At the consultation stage Southwark Council was advised that the application did not comply with the London Plan, for the reasons set out in paragraph 63 of the above-mentioned report; but that the possible remedies set out in paragraph 65 of that report could address these deficiencies: Principle of development: Further detail regarding the marketing of the site for office tenants and structural evidence to support the proposed approach is required given the significant reduction in office floorspace. Urban design and access: The design team need to reconsider a number of matters as set out in this report, including the land uses along the western elevation and animating the space. Level access along the eastern route, introduction of an internal lift at the hotel lobby, further images of the ramped arrangement at Upper Ground, introduction of a changing places WC in the refurbished office, plans showing the wheelchair accessible units and arrangement for wheelchair access to the gym. Furthermore, the applicant should confirm the proposed materials for all elements of the development. Climate change mitigation: The applicant should reconsider the energy efficiency side so as to meet Building Regulations 2010 through energy efficiency alone. The applicant should also provide a plan showing location of the energy centre including its size and layout. Transport: A number of issues need to be resolved including the Crossrail contribution, the car parking provision, pedestrian environment, coach facilities, travel plan improvements in line with TfL recommendations and a delivery and servicing plan and construction logistics plan both which should be secured by condition by Southwark Council 6 This report considers the extent to which these matters have been addressed by the applicant. Principle of development page 2 7 The Mayor raised concern regarding the case for the loss of office space given the location within the CAZ and the strategic priority identified in the London Plan to promote office provision in such locations. In order to justify the loss of office space the applicant has argued that as the building was not constructed for office purposes and that as such there are inherent design constraints which prevent the provision of high quality office floorspace. 8 The applicant also argues that these constraints (now supported by a structural engineering report) impact on the ability to convert large parts of the existing space into ‘grade A‘ office space. The applicant also argues that there are restrictions regarding alterations to increase the height of the building fronting the River Thames to accommodate further increase in office space provision and that the site is competing with the office market in and around the immediate area and at London Bridge, where new office provision is being delivered at the top end of the market in terms of the quality and quantity of space. Southwark Council has considered the matter in detail at paragraph 29-38 of the officer report. Having regard to the evidence provided by the applicant and the Council’s consideration of the case, GLA officers are broadly satisfied that the approach is acceptable. Urban design and access 9 The Mayor raised a number of design matters at the consultation stage. The key points related to the local townscape analysis, active frontage along the western and eastern routes, level changes, materials, layouts and wheelchair access. 10 The applicant has provided a detailed response. There have been very limited amendments to the proposals to address the points raised by the Mayor, however, the applicant has sought to justify the design approach being taken and highlight the existing and relevant constraints. 11 As reported in paragraph 23-25 of the Mayor’s consultation response whilst the strategic impact was broadly acceptable from the River Prospect it was difficult to make informed judgements on the impact on nearby heritage assets without more localised visual townscape material. Since then, the townscape material has been consolidated into an updated townscape document which draws on existing commentary and images elsewhere in the submission. This helps to understand the emerging impact on nearby heritage assets. Officers are broadly satisfied that the proposals would preserve the character and appearance of the conservation area and would not harm the setting of nearby listed buildings. 12 The applicant maintains that the east and west routes will be well surveyed by the proposed layout. It is disappointing that the design team has not considered more ambitious options to embrace the space that will eventually emerge at the rear of the Oxo tower. 13 The access strategy has been a significant challenge to the design team given the level changes between the River Walkway and Upper Ground. The applicant is in discussion with hotel operators for provision of an internal enclosed lift in the hotel lobby area. The current layout plans allow for its provision but discussion with the operators will need to be undertaken before its inclusion can be agreed. The provision of changing places WC in the atrium has not been included on the basis that this is not intended as a public space, but will have public access to the cafe. This remains disappointing but would be difficult to condition or design in at this stage in the design process. The applicant has agreed appropriate conditions regarding the provision of accessible hotel bed spaces which will be monitored. 14 Details regarding materials and appearance of the building is broadly supported. These matters have been conditioned to be agreed with the Local Planning Authority. Climate change mitigation page 3 15 The Mayor raised a number of matters regarding climate change including maximising energy efficiency as part of the redevelopment, confirmation regarding location and size of the energy centre and discussions with adjacent landowners regarding extension of the district network. 16 The applicant has provided a response which improves the energy efficiency measure which meet 2010 regulations through energy efficiency alone. A plan has been provided which confirms the location of the energy centre and confirmation regarding linking into adjacent sites has been provided and rejected on technical grounds. The approach is broadly supported. Key technologies have been secured by condition by Southwark Council. Transport for London’s comments 17 At the initial consultation stage, a number of issues were highlighted in relation to transport, notably Crossrail charges, car, and cycle parking levels, quality of the pedestrian environment, public realm. There were other matters raised regarding the Mayor’s Cycle Hire scheme, coach parking, construction impact, delivery and servicing and finally travel planning.
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