planning report PDU/1464a/01 4 March 2009 in the Borough of planning application no. 09-AP-0039

Strategic planning application stage 1 referral (new powers) Town & Country Planning Act 1990 (as amended); Authority Acts 1999 and 2007; Town & Country Planning (Mayor of London) Order 2008

The proposal Construction of an 11-storey building for use as an extension to the existing Tate Modern.

The applicant The applicant is The Board of Trustees of the Tate Gallery, and the architect is Herzog & De Meuron.

Strategic issues The extension to the Tate is supported by London Plan policies relating to London’s world city status; cultural and tourism facilities.

The design is welcomed with the use of brick providing a different but successful approach to the ‘glass boxes’ of the 2008 approval. However, the matter of ‘active’ frontages on the southern elevation needs further examination as well as detailing relating to the junction between the existing and new buildings.

There are outstanding concern relating to access/equal opportunities. Further discussions are required to ensure that the building fully meets the principles of inclusive design.

The application meets London Plan policies for transport and climate change.

Recommendation

That Southwark Council be advised that the application does not comply with the London Plan, for the reasons set out in paragraph 87 of this report; but that the possible remedies set out in paragraph 89 of this report could address these deficiencies.

Context

1 On 26 January 2009 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. Under the provisions of The Town & Country Planning (Mayor of London) Order 2008 the Mayor has until 6 March 2009 to provide the Council with a statement setting out whether he considers that the application complies with the London Plan, and his reasons for

1464aMAS10 – Staqe 1 report.doc page 1 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 of the Order 2008:

• Category 1B: “Development which comprises or includes the erection of a building….in Central London (other than the City of London) and with a floorspace of more than 20,000 sq.m.”

• Category 1C: “Development which comprises or includes the erection of a building…more than 30 metres high and outside the City of London”.

3 Once Southwark 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 environmental information for the purposes of the Town and Country Planning (Environmental Impact Assessment) ( and Wales) Regulations 1999 has been taken into account in the consideration of this case.

5 The Mayor of London’s statement on this case will be made available on the GLA website www.london.gov.uk. Site description

6 The Tate Modern is located on the south side of the directly opposite St. Paul’s Cathedral. The surrounding area is characterised by a variety of building types and uses including commercial, residential and cultural.

7 The extension would be located on the south-west part of the site above the disused oil storage tanks of the former and on the current location of the western Switch House. It involves the demolition of the western half of the Switch House and re-use of the oil tanks. It is enabled by the consolidation of the existing EDF energy (EDFE) transformer station into the east end of the Switch House, releasing the west end of the structure for use by the Tate.

8 The A201 Blackfriars Road and A3200 Southwark Street, both part of the Transport for London Road Network (TLRN), are each within 300m of the site. National Cycle Route 4 runs directly adjacent to the site on Park, Sumner, Holland, and Hopton Streets.

9 The site is well served by public transport with Southwark Underground station (Jubilee Line) 700m south and Blackfriars Underground and National rail station (Circle and District Lines, First Capital Connect) 700m north. London Bridge and Cannon Street stations are also within walking distance, both offering National and Underground services. Six bus routes can be accessed within a 300m walk on Blackfriars Road and Southwark Street. A further 9 bus routes are accessible from the north of the Thames. Correspondingly, the site has an excellent public transport accessibility level (PTAL) of 6 (on a scale where 6 is high and 1 is low).

Details of the proposal

10 Tate Modern opened to the public in May 2000 with an expected annual visitor level of 1.8 million. In its eighth year of operation, visitors have reached an average of 4.8 million per annum. It is the third most visited museum in London after the National Gallery and the British Museum.

1464aMAS10 – Staqe 1 report.doc page 2 11 The Tate has stated that it needs to expand for the following reasons:

• Visitor demand: There are now negative effects on the visitor experience due to the popularity of the gallery. There is overcrowding throughout, particularly at weekends and the catering facilities and visitor services cannot meet the demand at peak times.

• Display: More space is required to display its collection and art forms new to the Tate including photography, film, video and performance.

• Learning: The Tate is committed to increasing public knowledge and enjoyment of art.

12 The proposal is similar in massing and scale to an extension approved in December 2008 but there are significant changes with regards to the external materials and the internal organisation.

13 The previous approval consisted of stacked boxes with a textured glass facade.

2008 approved and current proposal (Source: Herzog & De Meuron)

14 A new application has been submitted as some of the Tate’s objectives have been updated. These are as follows:

• Oil tanks: In response to the enthusiasm demonstrated by artists and prospective collaborators, the Tate has decided that the oil tanks of the former power station should be retained as far as possible in their current configuration as ‘found spaces’

• Sustainability: The Tate felt strongly that the extension should set a high standard in terms of its sustainability and energy use. By exploiting heat emitted from EDFE’s relocated transformers, adopting ground source heating and cooling as a renewable form of energy and employing passive design principles wherever practicable, the scheme will achieve 44% saving in carbon emissions and 54% energy reduction over the baseline scheme. A key factor would be the activation of the structure and use of the facade to bring in natural light whilst minimising solar gain. The development would also incorporate natural ventilation in non-gallery spaces.

• Refinement of brief: The brief for the earlier proposal has been re evaluated by Tate staff. This has led to a number of changes in an attempt to ensure that the floorspace is used as

1464aMAS10 – Staqe 1 report.doc page 3 efficiently as possible. This has been achieved through measures such as the sharing and consolidation of work and meeting space leading to a modest reduction in the area required within the new proposal. This has had an external impact on the design of the new proposal, notably a reduction in height and bulk and massing compared to the original proposal.

15 The new building will include space for display, learning, circulation, visitor services, staff offices, catering, back of house and plant.

16 Central to the urban and architectural vision is that Tate Modern becomes a singular place merging the existing and proposed galleries. The oil tanks will lead directly into the Turbine Hall and these interconnecting spaces will become the new ‘heart ‘ of the Tate.

17 From the oil tanks, a ‘ceremonial route’ formed of an ascending stair will lead visitors up the new extension. The building will also be served by lifts.

18 The new extension will rise approximately 70 metres above ground in 11 levels (9 above ground).

19 The new extension will provide a new frontage to the gallery and allow Tate Modern to face south towards Southwark for the first time. A new entrance on the south side of the building will lead visitors (approaching from the south) into the new extension and the Turbine Hall. A new north –south route will be created through the building, permitting visitors to enter via the south entrance, across the Turbine Hall and exit via the north entrance/exit or vice versa. This route would generally be open 12 hours a day and link the riverside and the City to Southwark Street and beyond. Case history

20 The refurbishment of the old Bankside power station into the current Tate Modern was completed in 2000.

21 The former Mayor considered a similar extension proposal for the Tate in February 2007 and concluded that the proposal was acceptable.

22 Planning permission was granted by Southwark Council in December 2008 following the signing of a Section 106 agreement. Strategic planning issues and relevant policies and guidance

23 The relevant issues and corresponding policies are as follows:

• World city role/culture/tourism London Plan; the Mayor’s Culture Strategy • Urban design London Plan; PPS1 • Access/equal opportunities London Plan; PPS1; Accessible London: achieving an inclusive environment SPG; Wheelchair Accessible Housing BPG; Planning and Access for Disabled People: a good practice guide (ODPM; Planning for Equality and Diversity in Meeting the spatial needs of London’s diverse communities SPG; Diversity and Equality in Planning: A good practice guide (ODPM) • Climate change London Plan; PPS1, PPS3; PPG13; PPS22; the Mayor’s Energy Strategy; Sustainable Design and Construction SPG

1464aMAS10 – Staqe 1 report.doc page 4 • Transport London Plan; the Mayor’s Transport Strategy; PPG13

24 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 2007 Southwark Unitary Development Plan and the London Plan (Consolidated with Alterations since 2004). World city role/culture/tourism

25 London is a world-class creative city and Tate Modern is one of the capital’s major success stories. The proposals for the new development will enable Tate Modern to accommodate more audiences, expand its education programme and play a key role in the regeneration of the surrounding area.

26 Culture is a key element of London’s economy. This is evident in the growing importance of the creative industries, the inward investment that culture brings to the city and the value of tourism. The proposal is in line with the Mayor’s Economic Development Strategy to maintain and develop London as a top international destination and principle gateway for visitors, tourism and investment. The site is also located in a Strategic Cultural Area which should provide capacity for the types of world-class institutions identified by the Mayor’s Culture strategy.

27 Tate Modern has been a major driver of regeneration at Bankside in Southwark. Extending the Tate Modern would be a major element to sustain the regeneration of the area and increase the cultural offer of the .

28 The proposal would thus accord with London Plan Policies 1.1 (‘London in its global, European and UK context’); 3D.4 (‘Development and promotion of arts and culture’); and 3D.7 (‘Visitor accommodation and facilities’). Urban Design

29 Good design is central to all objectives of the London Plan and is specifically promoted by the policies contained within Chapter 4B which address both general design principles and specific design issues. London Plan Policy 4B.1 sets out a series of overarching design principles for development in London. Other design polices in this chapter and elsewhere in the London Plan include specific design requirements relating to maximising the potential of sites, the quality of new housing provision, tall and large-scale buildings, built heritage and views.

30 The architect of the original conversion of the Tate Modern building, Herzog and De Meuron, has been appointed to design this extension. For ‘Tate Modern 2’ the architect has derived the proposed shape and architecture from combining a number of concepts and parameters, among others pedestrian movement, the varied programme of the extension, rights of light and the architectural relation to the old power station.

31 The architects settled on a shape and architecture that is unlike other modern art galleries, which is commensurate with the unique function of the Tate Modern within the cultural landscape of London and the world. Considering the unique position of the Tate Modern as a leading gallery for modern art, the architect has allowed considerable freedom to experiment in terms of architecture.

32 The building is a melding of pyramidal and rectangular forms that twist into one another as they rise above ground. The scale and austerity of architecture the development appears quite formidable and almost brutalist in its aesthetic. The irregular geometric form will be clad in a brick facade with a ‘perforated’ or porous effect achieved by removing alternating bricks from the

1464aMAS10 – Staqe 1 report.doc page 5 facade. This brick screen will be further distinguished by a subtle and gradual change in colour from a reddish brick at the base to a yellow/brown London stock colour at the top. Finally, horizontal strips of windows will create ‘cuts’ in the otherwise solid exterior. The proposal also now incorporates disused oil tanks below ground to provide additional space for exhibitions and back of house functions. The reclamation of these oil tanks is a commended aspect of the scheme, linking the extension back to the previous uses on the site and allowing the public to enjoy the industrial heritage of the site.

33 The existing roof extension of the power station is successful in part because it is very different from the existing building. The simplicity of the white glass extension creates a satisfying contrast with the strength of the old power station, and a similar strategy was pursued for the previous proposal for the extension, which incorporated textured glass to embody both the lightness of the roof extension and to incorporate a sense of the industrial aesthetic.

34 For this revised proposal, the applicant has pursued the opposite strategy, seeking to introduce a structure that appears to have grown organically out of the old power station. The design is distinguished from the surrounding commercial and residential developments, while simultaneously expressing its individual strength with its own distinctive silhouette. The resulting building will add to the landmark qualities of the existing Tate Modern and will complement the emerging group of taller structures along this stretch of the Thames.

35 In most cases, the proposal contributes positively to the composition and layering of buildings on this part of the South Bank. The proposal deliberately breaks into the clear sky above the glazed roof extension of the existing building, disturbing the strong horizontal emphasis of the historic power station and the equally powerful vertical statement made by the chimney. This is in acknowledgement of the rapidly changing context surrounding the building, for which the Tate Modern 1 could be seen as a key catalyst. This includes the recently completed 1, 2, 3 Bankside buildings directly south of the site, the soon to be completed Holland Street Buildings directly to the west, and taller landmark buildings farther to the west.

36 One key aspect of the design that has not been fully detailed is how the two buildings meet and how the junction between the power station and the new building will be treated. The CGIs provided suggest that this intersection is dealt with somewhat bluntly, with no visual break between the old and new; this is not entirely successful and might benefit from further consideration.

37 Also of concern is the lack of active frontage to Holland Street, on the southern elevation of the proposal. The applicant has chosen to locate storage and waste areas behind a blank facade on half of the southern elevation to Holland Street, which is a surprising and un-neighbourly approach that turns its back on the surrounding community. It is unclear why the cafe has not been extended, or greater effort made to create an interaction with this stretch of street, particularly given the new residential development directly opposite. Every effort should be made to ensure that the street is overlooked and well-surveilled, and the current design represents a missed opportunity to improve what is currently an unwelcoming and dark street.

38 The internal planning of the existing museum is somewhat confusing, with the ticketing level at the lower ground (level 1), an escalator that skips level 1, and unclear wayfinding that makes it difficult to find or access the level that opens to the north. This proposal does not seek to remedy this situation, and maintains the main ticket hall and entrance lobby at the lower ground level, 1 level below the south and north entrance. It is likely that the great majority of visitors will now approach the museum from either north or south, as the opening of the south entrance allows those visitors coming from Southwark Station to come directly into the museum without

1464aMAS10 – Staqe 1 report.doc page 6 continuing to the west entrance. Consequently, it is not clear why visitors must be required to descend by spiral stair to arrive at the ‘main’ information and ticket hall.

Public routes/public realm/servicing

39 Given the prominent position of the Tate Modern in the cultural offer of London the gallery needs to be visible and easy to get to. Prior to submitting the previous planning application the Tate Gallery commissioned a study about local movement networks. The massing, footprint and entrances of the extension responds directly and successfully to pedestrian and cycle networks.

40 The proposed public open space to the south and southeast of the combined Tate Modern feeds into an important route, along Great Suffolk Street to and from Southwark Underground station on the Jubilee Line. The new southern entrance connects step-free to the existing entrance on the north side of the existing building, via the existing ‘level 0’ of the existing building. Thus, the combined new and old Tate Modern will have public entrances on the north, west and south sides, making maximum use of existing and expected visitor flows. The proposals would also add a north-south route along the eastern side of the existing Tate Modern building, where currently the staff and service entrance prevents permeability.

41 Immediately to the west is the site of 44 Hopton Street which will be brought into the public realm as part of the Tate Modern 2 application. This would greatly improve the orientation and attractiveness of the public realm on the west side of the Tate Modern, allowing a clear view of the new building next to the existing building.

42 To service the extension the plans contain a goods handling zone to the west. The space must be designed in such a way that it would not detract from the design quality of the extension or pedestrian movement along this side of the museum.

43 The proposal incorporates public access to a terrace around the perimeter of the top floor and a restaurant on the floor below the public terrace; these elements are in line with strategic planning policy which encourages public space at the top of tall buildings.

Strategic views

44 The applicant has submitted a detailed visual and townscape analysis of the proposal which considers the impact of the proposal on long-range and mid-range views. The proposed development lies just outside the backdrop consultation zone of St. Paul’s Cathedral seen from the viewpoint at Alexandra Palace. The proposal blends into the background below the horizon line and will not have any visual impact on that strategic view. The applicant has also considered the impact on the LVMF river prospect from , and has provided night time views as well. Access/equal opportunities

45 The aim of London Plan Policy 4B.5 is to ensure that proposals achieve the highest standards of accessibility and inclusion (not just the minimum). The Tate Modern should do everything possible to provide an inclusive experience so that everyone can use the proposed building comfortably, safely and with dignity. The proposal is generally accessible but a number of issues, similar in nature to the previous application, depend on detailed design and therefore should be included in planning conditions to be imposed and enforced by Southwark Council, if the application is approved.

1464aMAS10 – Staqe 1 report.doc page 7 Existing building

46 This is also an opportunity to improve the quality of the experience disabled visitors have using the original building. An assessment of the issues that disabled people have with the existing building (e.g. the difficulties experienced with the cramped lobby space in front of the passenger lifts) should be undertaken as soon as possible so that the design of the new extension can help to resolve some of these issues.

Proposed building

47 The external approach to the new building, while helping to provide more permeability through the building and linking Sumner Street and the riverside walk, should be designed to be easily accessible with gentle slopes to overcome the change in level. It is unclear at this stage whether the proposed flights of steps will create a visual and physical barrier (visually impaired people can find tapering steps particularly difficult to negotiate).

48 There do not seem to be escalators in the new extension, which would relieve demand for lifts and decrease waiting times. The lifts should be a generous size with large lobbies to ensure easy access into and out of the lift (the lobby on the upper levels 6-11 appear no bigger than in the existing building where congestion is a problem particularly when wheelchair users are using the lifts).

49 The floor in the entrance foyer of level 01 appears to be sloped in front of the reception desk, which can create difficulties for disabled people using the desk, and leaves an exit from one of the tank galleries with a small flight of steps without an alternative step-free or slope-free route.

50 The straight and zig zag staircases of the previous application are replaced by circular staircases, again in different locations throughout the building. Some of the staircases will be very wide with a radius of several metres, which would allow for more ‘lazy’ steps on the outside of the staircase which could include steps high enough to sit on. There is concern that this design could be problematic for visually impaired people to safely negotiate even though hand railings would be provided to meet British Standards. Other staircases would not be designed to the same width. All circular staircases have steps that taper down in width to the centre of the staircase. There is concern that the circular staircases would result in clashes between up and down visitor streams; that the tapering down of the steps would result in trip hazards; and that the circular nature of the staircases would result in disorientation of the visitors.

51 Furthermore, the incorporation of a spiral stair from the ‘bridge’ at level 2 down to level 1 is not ideal in inclusive design terms, as there is no lift option nearby, requiring those with impaired mobility to search for lifts to provide access to level 1. The applicant should consider improving the legibility and layout of the facility by bringing the ticketing and main information areas to the second level, and to providing an alternative inclusive means of access down to level 1 as close to the proposed spiral stairway as possible.

Way finding

52 Because the staircases are not placed in a single atrium or other unifying space, the way finding between the galleries could be quite difficult. The different places of the staircases combined with a circular movement would mean that visitors would heavily rely on signage to find their way, which is not in line with principles of best practice of developing an inclusive environment.

53 Visitors of the Tate Modern can move between the two buildings on three levels: at basement level (the level of the floor of the turbine hall), at the ground floor (‘level 2’) and at

1464aMAS10 – Staqe 1 report.doc page 8 ‘level 5’ across a new walking bridge. The necessary signage should guarantee clear navigation between the different parts of the extended Tate Modern. The opportunity should also be taken to install a lift beside the steps which give access between the lower level of the turbine hall and the ground floor so that disabled visitors can have a similar experience to people who use the steps when using this space – the extension may provide the opportunity to resolve this lack of inclusive access at this point in the building. Climate change mitigation

54 The London Plan requires developments to make the fullest contribution to the mitigation of, and adaptation to, climate change and to minimise carbon dioxide emissions (Policy 4A.1).

55 Policies 4A.2 to 4A.8 of the London Plan focus on how to mitigate climate change, and the carbon reduction targets that are necessary across London to achieve this. Developments are required to be adaptable to the climate they will face over their lifetime and address the five principles set out in policy 4A.9 of the London Plan.

56 London Plan policies 4A.4 and 4A.7 require the submission of an energy demand assessment along with the adoption of sustainable design and construction, demonstration of how heating and cooling systems have been selected in accordance with the hierarchy and how the development will minimise carbon dioxide emissions, maximise energy efficiencies, prioritise decentralised energy supply, and incorporate renewable energy technologies, with a target of 20% carbon reductions from on-site renewable energy.

57 The applicant has broadly followed the energy hierarchy set out in Policy 4.A1.

58 The modelled baseline emissions are 2,010 tonnes carbon per annum with all energy use accounted for.

59 A range of energy efficient design measures are proposed that reduce emissions by 10%. Measures include significantly improved building fabric performance compared to Building regulations 2006 – low U-values; air permeability, natural ventilation where possible and adaptive external solar control features.

60 The proposal includes using waste heat from the EDFE electricity sub-station. This is welcomed and will reduce the carbon dioxide emissions by 30% over and above the energy efficiency measures.

61 As part of the proposal a ground cooling system and a ground source heat pump system will be installed to supply all cooling load as well as supplement the heating load during the heating season. This will reduce the carbon dioxide emissions by 11% over and above the energy efficiency and waste heat measures.

62 The application falls short of the 20% renewable target as required by the London Plan and there may be some opportunities for further contributions from renewables by photovoltaics. Further work is required to demonstrate that the renewable contribution has been maximised.

Climate change adaptation

63 The London Plan promotes five principles in policy 4A.9 to promote and support the most effective adaptation to climate change. These are to minimise overheating and contribution to heat island effects, minimise solar gain in summer, contribute to flood risk reductions, including applying sustainable drainage principles, minimise water use and protect and enhance green infrastructure. Specific policies cover overheating, living roofs and walls and water.

1464aMAS10 – Staqe 1 report.doc page 9

Overheating (Policy 4A.10)

64 A cooling strategy is proposed within the energy strategy. This is acceptable.

Living roofs and walls (Policy 4A.11)

65 The policy seeks that green and brown roofs and walls are included where these are feasible. It is recognised that the design of the building prevents this from occurring in this instance.

Flooding (Policy 4A.13) and sustainable drainage (Policy 4A.14)

66 A flood risk assessment for the proposal has been submitted. The site lies in Flood Zone 3 which indicates a probability of flooding greater than 0.5% from tidal sources. The Environmental Statement advises that due to the site being protected from the River Thames by means of raised ground and the existence of the Thames Barrier, the building would be protected from a 1 in 1000 year flood event.

67 The increase in impermeable area at the site as a result of the development will have a minor adverse impact as this will slightly increase the amount of surface water run off generated from the site. However, a dedicated drainage system to accommodate these changes will provide attenuation which is expected to reduce the existing run off rates by at least 70%.

Water use (Policy 4A.16)

68 No information has been provided by the applicant in relation this matter. This should be addressed. Transport

Underground and National Rail

69 Blackfriars Underground and rail station is presently undergoing extensive renovation and expansion which will include the creation of a second station entrance on the South Bank within a 300m walk from the Tate Modern in late 2011. The works at Blackfriars are scheduled to be completed prior to the expected opening of Tate Modern 2. Blackfriars is then expected to be seen as the main station to access Tate Modern.

70 TfL does not consider that the proposed expansion will have a significant impact on London Underground or mainline rail services. However, the applicant should promote the use of multiple Underground and rail stations as part of the visitor travel plan, even following the opening of the new Blackfriars station entrance.

Car Parking

71 A total of 9 disabled car parking spaces are currently provided on site. An additional 3 spaces are proposed in relation to the extension. No additional visitor car parking will be provided on the site, this is welcomed. In terms of car parking the proposal are in general compliance with London Plan Policy 3C.23 ‘Parking strategy’.

1464aMAS10 – Staqe 1 report.doc page 10 Cycle Parking

72 186 secure cycle spaces are proposed to be provided as part of this application to serve the whole Tate Modern site. Of these, 110 spaces would be distributed throughout the landscaping scheme to the west and south of the development for visitors, with the remaining 76 spaces for staff use located in the western and eastern goods handling zones replacing the existing non- secure staff cycle parking. TfL supports the quantum and quality of the proposed cycle parking as it represents a significant improvement over the existing provision, adhering to London Plan Policy 3C.22 ‘Improving conditions for cycling’.

73 The applicant’s commitment to the Mayor’s cycle hire scheme is supported as the Tate Modern is a major trip attractor. Although the cycle hire stations are outside the scope of this planning application, an indicative location has been identified for one cycle hire station within the site, with space for a second station identified on the north side of the building.

Walking

74 TfL supports the creation of a north-south walking route between the riverside walkway and Southwark Street. Improvements to the quality of the north-south walkway at the eastern edge of the site are welcomed. There are a number of decision points along the primary walking routes without signage to either the Tate Modern or the nearest Tube station. To help mitigate the impact of the development on the public transport network, TfL would welcome improvements to pedestrian signage and wayfinding in the local area.

75 The visitor travel plan should include a measure committing the Tate Modern to work with relevant parties to improve signage in the above locations. It is noted that Tate is involved in the Legible London scheme and any proposals to help support this pedestrian signage scheme are supported.

Taxis

76 TfL previously raised concerns that the Holland Street taxi rank had insufficient capacity to accommodate the existing proven demand. TfL welcomes the proposals to provide off-street drop- off/pick-up space for 7 taxis, which is expected to meet demand. To ensure the provision remains sufficient, the applicant has also agreed to monitor taxi demand on a half-yearly basis and contribute up to £20,000 towards the development and implementation of appropriate solutions if necessary. This is welcomed and should be secured as part of the Section 106 agreement.

Buses and coaches

77 TfL has identified a need for improvements to coach facilities and the provision of an additional bus stop to serve Tate Modern and the local area. A scheme has been developed which would convert an existing coach stop on the south side of Southwark Street between Bear Lane and Burrell Street into a bus stop for route RV1. A replacement coach stop can be provided on the north side of the street under the railway bridge, east of the existing bus stop.

78 A sum of £34,000 was agreed as part of the previous application for monitoring and necessary improvements to bus stops SQ and SW, the two nearest stops to the Tate Modern. However, a programme of works to the Southwark Street corridor have been implemented since that time which have addressed the necessary accessibility improvements. The previously agreed £34,000 bus stop contribution should instead be applied towards the necessary bus and coach stop changes outlined above.

1464aMAS10 – Staqe 1 report.doc page 11 Section 106 contributions

79 As discussed above, a need for improvements to bus stops on the south side of Southwark Street and for a coach bay on the north side of Southwark Street have been identified. TfL has developed a scheme to provide both, with the costs expected to be in the region of £30-35,000. TfL therefore considers that the previously agreed £34,000 bus stop contribution should instead be applied towards the necessary bus and coach stop changes outlined above, which will require revision to the wording of the draft Section 106.

80 The applicant has agreed to undertake regular surveys of taxi demand and taxi-rank capacity at the Tate Modern and contribute £20,000 (index linked) towards the development/ implementation of a solution if required. This has been included in the draft Section 106 agreement. This proactive approach to mitigating taxi impacts is supported.

Travel plan

81 The submission of a travel plan is noted but further work is required on objectives, targets, funding, marketing, measures and monitoring before it can be considered acceptable in line with London Plan Policy 3C.2 Matching development to transport capacity. Measures to enhance signage and wayfinding to and from the site should be considered. It is supported that the travel plan is to be secured as part of the Section 106 agreement.

Delivery and servicing

82 The applicant has agreed to prepare a delivery and servicing plan (DSP) and has proposed to secure this by planning condition. Given the road-based nature of the deliveries and the considerable quantity of servicing and delivery trips that are expected, the DSP should be agreed with TfL as well as the borough prior to occupation. Provided that the condition requires the agreement of both TfL and the borough to the DSP, it is considered that the application complies with London Plan Policy 3C.25 ‘Freight Strategy’.

Construction management

83 A full programme of demolition and construction has been included as part of the application. TfL is satisfied with the elements and proposals and notes that all subcontractors will be required to adhere to the standards set out in the programme. Local planning authority’s position

84 The date for consideration by Southwark Council is unknown at present. Legal considerations

85 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. 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.

1464aMAS10 – Staqe 1 report.doc page 12 Financial considerations

86 There are no financial considerations at this stage. Conclusion

87 London Plan policies on world city role/culture/tourism; urban design; access and equal opportunities; climate change and transport are relevant to this application. The application complies with some of these policies but not with others, for the following reasons:

• World city role/ cultural facilities/tourism: Compliance with London Plan policies 1.1 (‘London in its global, European and UK context’); 3D.4 (‘Development and promotion of arts and culture’); and 3D.7 (‘Visitor accommodation and facilities’). • Urban design: Compliance with London Plan policies 4B.2 (‘Promoting world class architecture and design’); and 4B.3 (‘Enhancing the quality of the public realm’). 4B.9 (‘Tall buildings –location’) and 4B.10 (‘Large scale buildings –design and impact’). Non -compliance with London Plan policies 4B.1 (‘Design principles for a compact city’). • Access/equal opportunities: Non compliance with London Plan policy 4B.5 (‘Creating an inclusive environment’).

• Climate change: Compliance with London Plan policies 4A.1 (‘Tackling climate change’); 4A.4 (‘Energy assessment’); 4A.7 (‘Renewable Energy’); 4A.9 (‘Adaptation to Climate Change’); 4A.10 (‘Overheating’); and 4A.11 (‘Living roofs and walls’).

Non compliance with London Plan policy 4A.16 (‘Water supplies and resources’).

• Transport: Compliance with London Plan policies 3C.2 (‘Matching development to transport capacity’); 3C.18 (‘Allocation of street space’); 3C.20 (‘Improving conditions for buses’); 3C.21 (‘Improving conditions for walking’); 3C.22 (‘Improving conditions for cycling’); 3C.23 (‘Parking strategy’); 3C.25 (‘Freight strategy’); and 4C.8 (‘Freight uses on the Blue Ribbon Network’).

Non–compliance with London Plan policy 6A.4 (‘Priorities in planning obligations’).

88 On balance, the application does not comply with the London Plan.

89 The following changes might, however, remedy the above-mentioned deficiencies, and could possibly lead to the application becoming compliant with the London Plan:

• Urban design: Further development of the design to address the weaknesses relating to the provision of an active frontage to Holland Street and detailing the junction between the new and the existing building on the western facade.

• Access/equal opportunities: Further discussions and possible alterations as set out at paragraphs 45-53 above.

• Transport: Further information on the developer’s agreement to the proposed re- direction of Section 106 contributions.

for further information, contact Planning Decisions Unit:

1464aMAS10 – Staqe 1 report.doc page 13 Giles Dolphin, Head of Planning Decisions 020 7983 4271 email [email protected] Justin Carr, Strategic Planning Manager (Development Decisions) 020 7983 4895 email [email protected] Martin Scholar, Case Officer 020 7983 5750 email [email protected]

1464aMAS10 – Staqe 1 report.doc page 14