planning report PDU/2659/01 25 August 2010 Norwood Hall, West Norwood in the London Borough of Lambeth planning application no.10/02230 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 Demolition of existing community hall and redevelopment of the site comprising the construction of a part 1, part 2 and part 4 storey building on existing open space to the northeast of the site to provide a Joint Service Centre incorporating 2,702 sq.m. of floorspace (Use Class D1) to provide a customer service centre, primary care health centre, community meeting rooms; and 2,702 sq.m. of floorspace (Class D2) to provide a leisure centre (including a swimming pool and a gym), a dance studio, and a cafe with outdoor seating area; landscaping of existing and new open space including levelling of parts of the site involving earthworks; creation of a new woodland nature area to the north of the site, re-modelling of the entrance road from Knight's Hill to include a turning point for coaches and an informal drop off point, and provision of associated parking for 18 cars (including 4 disabled spaces) and 74 cycle parking spaces. The applicant The applicant is Building Better Health LSL Ltd., and the architect is Allford Hall Monaghan Morris. Strategic issues The proposal raises serious strategic policy concerns with regard to the loss of open land and playing fields. Further work and discussion is also required on design, access, sustainable development and transport before the application is referred back to the Mayor. Recommendation That Lambeth Council be advised that the application does not comply with the London Plan, for the reasons set out in paragraph 73 of this report; but that the possible remedies set out in paragraph 75 of this report could address these deficiencies. The application does not need to be referred back to the Mayor if Lambeth Council resolve to refuse permission, but it must be referred back if Lambeth Council resolve to grant permission. Context 1 On 15 July 2010 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 page 1 above uses. Under the provisions of The Town & Country Planning (Mayor of London) Order 2008 the Mayor has until 25 August 2010 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 Category 3E of the Schedule to the Order 2008: ”Development which does not accord with one or more provisions of the development plan in force in the area in which the application site is situated; and comprises or includes the provision of more than 2,500 square metres of floorspace for uses falling within the following classes in the Use Classes Order – class D1 (non-residential institutions) and class D2 (assembly and leisure).” 3 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; or allow the Council to determine it itself, unless otherwise advised. In this instance if Lambeth Council resolves to refuse permission it need not refer the application back to the Mayor. 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 Knight’s Hill ward of Lambeth, in West Norwood. It is bounded by the residential areas of Prioress Road to the west and Canterbury Grove to the north, Network Rail land to the east and Devane Way and London Quadrant offices to the south. The site includes the existing Norwood Hall (disused since 1997), and is largely characterised by steeply sloping open space which slopes down towards the railway. Lambeth Council’s adopted UDP designates much of the site as open space, while the adjoining railway corridor is designated as a Borough site of nature conservation. The site also lies within an area of local archaeological importance. 6 Primary access to the site is obtained via Devane Way off A215 Knight’s Hill which is located to the east of the site, and forms part of the Strategic Road Network (SRN). Approximately 100m east of the site is West Norwood train station, which is served by trains from Victoria and London Bridge to West Croydon. 10 bus routes serve the proposed development from the A215 Norwood Road, less than 200m from the site. This generates a Public Transport Accessibility Level (PTAL) of between 4 and 5, on a scale where 1 is low and 6 is high. Details of the proposal 7 The proposal is for a new joint service centre to include leisure and healthcare facilities on the sloping open space adjacent to the existing vacant Norwood Hall building. The existing Norwood Hall would be demolished and the site cleared and landscaped to re-provide a significant proportion of the open space lost due to the development of the new building. The re-provided open space would be levelled using material excavated in order to accommodate the new joint service centre building, therefore rendering it more usable for informal recreation. The area adjacent to the cafe would be designed as a toddlers play area, allowing parents to overlook the area. 8 The facilities provided by the joint service centre are listed below: 25m swimming pool 80-100 station gym dance studio page 2 wet and dry changing areas customer service centre cafe and outdoor seating area meeting rooms/community venues two GP suites dentistry suite sessional suite with two group rooms clinical suite open plan office accommodation for staff shared staff facilities 9 Proposals also include a remodelling of Devane Way to include a turning point for coaches, 18 car parking spaces (including 4 disabled spaces), and 74 cycle parking spaces. Case history 10 There is no relevant strategic case history. Site visit 11 A site visit was carried out by the case officer on 9 August 2010. Strategic planning issues and relevant policies and guidance 12 The relevant issues and corresponding policies are as follows: Open land London Plan; PPG17; draft PPS Planning for a Natural and Healthy Environment Playing fields London Plan; PPG17, draft PPS Planning for a Natural and Healthy Environment Biodiversity London Plan; the Mayor’s Biodiversity Strategy; PPS9; draft PPS Planning for a Natural and Healthy Environment Urban design London Plan; PPS1 Access London Plan; PPS1; Accessible London: achieving an inclusive environment SPG; Planning and Access for Disabled People: a good practice guide (ODPM) Equal opportunities London Plan; 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) 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 and parking London Plan; the Mayor’s Transport Strategy; PPG13 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 2007 Lambeth Unitary Development Plan and the London Plan (Consolidated with Alterations since 2004). page 3 14 The following are also relevant material considerations: The draft replacement London Plan, published in October 2009 for consultation. The Lambeth Core Strategy (Submission Stage, March 2010). The Lambeth Site Allocations Development Plan Document (Issues and Options Stage, July 2009). Principle of development 15 The application site is located predominantly on land designated as open space in Lambeth Council’s adopted UDP, and identified as playing field on the Council’s UDP proposals map. The red line boundary also encompasses an area of ‘white land’ (excluded from the open space designation) at the south and southwest of the site, which accommodates the main site access and existing community hall building. 16 The site is identified in Lambeth’s Local Development Framework Submission Stage Core Strategy as suitable for a joint service centre, including leisure and community uses. This designation is reflected by the Council’s West Norwood Masterplan, and the emerging Site Allocations DPD which identifies a preferred use of a sports hall and health centre, while retaining and improving open space at the site. 17 Chapter 3 of the London Plan is concerned with, amongst other things, open space, and Policy 3D.8 states that “The Mayor will work with strategic partners to protect and promote London’s network of open spaces, to realise the current and potential value of open space to communities and to protect the many benefits of open space...”. 18 The proposals involve demolishing the existing Norwood Hall, building the joint service centre on land currently designated as open space and playing field, and re-providing an area of landscaped open space in the currently undesignated ‘white land’ area (opened up by the demolition of the existing hall). 19 The proposals involve a significant reconfiguration of open space at the site, and result in an increase in built footprint of approximately 1,644 sq.m, and an increase in hardstanding of 1,523 sq.m.