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2-3 Finsbury Avenue, Bishopsgate in the City of London

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2-3 Finsbury Avenue, Bishopsgate in the City of London planning report D&P/3763/01 21 April 2016 2-3 Finsbury Avenue, Bishopsgate in the City of London planning application no. 16/00149/FULEIA 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 Demolition of existing buildings and construction of a building arranged over 3 basement floors, ground and 32 upper floors plus mezzanine and 3 rooftop plant levels (168.4m AOD) to provide office accommodation (Class B1); flexible retail uses (Class A1-A3); cafe/restaurant uses (Class A3); flexible retail uses (Class A1/A3); a flexible space for office, conferencing, events and/or leisure use (Class B1, D1, D2 and/or sui generis) and a publicly accessible roof terrace and associated facilities; hard and soft landscaping works; servicing facilities; and other works incidental to the development (total floor area 92,123sq.m GEA). This application is accompanied by an Environmental Statement. The applicant The applicant is Bluebutton Properties Ltd and the architect is Arup Associates. Strategic issues The proposal is supported in strategic planning terms. This is an appropriate location for a tall building of high design quality, and the proposed office development would support the function of the Central Activities Zone. Various outstanding matters with respect to urban design, safeguarding future development, sustainable development and transport should, nevertheless, be addressed prior to the Mayor’s decision making stage. Recommendation That the City of London Corporation be advised that whilst the application is broadly supported in strategic planning terms, the application does not fully comply with the London Plan for the reasons set out in paragraph 82 of this report. The resolution of those issues could, nevertheless, lead to the application becoming compliant with the London Plan. page 1 Context 1 On 11 March 2016 the Mayor of London received documents from the City of London Corporation 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 21 April 2016 to provide the City Corporation 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: 1B 1.(a) “Development (other than development which only comprises the provision of houses, flats, or houses and flats) which comprises or includes the erection of a building or buildings - in the City of London and with a total floorspace of more than 100,000 square metres”; and, 1C 1.(b) “Development which comprises or includes the erection of a building of… more than 150 metres high and is in the City of London”. 3 Once the City Corporation 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 City Corporation to determine it itself. 4 The environmental information for the purposes of the Town and Country Planning (Environmental Impact Assessment) Regulations 2011 (as amended) 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 existing 0.49 hectare site comprises two 1980’s commercial office buildings located at 2-3 Finsbury Avenue at the northern end of Finsbury Avenue Square within the Broadgate Estate. The site is situated at the north-eastern extent of the City of London and is immediately adjacent to the administrative boundaries of the London Boroughs of Hackney and Islington. It is within the Central Activities Zone as identified by the London Plan. The City Fringe Opportunity Area lies immediately to the north of the site. 7 The application site is bounded by Finsbury Avenue Square and the Grade II listed 1 Finsbury Avenue building to the south, Sun Street to the north and Wilson Street to the west. Finsbury Pavement is the closest part of the Strategic Road Network, and Bishopsgate (A10) lies approximately 400 metres to the east. 8 The site is highly accessible by public transport, being 300 metres from Liverpool Street station where national rail and underground services on the Central, Metropolitan, Circle and Hammersmith & City lines can be accessed, as well as 17 bus routes. Northern line services and additional national rail services and bus routes are available 400 metres away at Moorgate station and Docklands Light Railway and Waterloo & City line services are within walking distance at Bank station. From 2018, Crossrail services will also stop at Liverpool Street, with an entrance from Moorgate. As such, the site records the highest possible Public Transport Accessibility Level (PTAL) of 6b. There is a cycle hire docking station opposite the site on Sun Street, and Cycle page 2 Superhighway Route 1 will also start close to the site at the junction of Wilson Street and Sun Street. Details of the proposal 9 The proposals seek the demolition of the existing commercial buildings and their replacement with a mixed-use, office-led redevelopment. The mix of uses will be predominantly B1 office floorspace, with A1-A3 retail/commercial uses on the ground floor within a new arcade that will link Finsbury Avenue Square with Sun Street to the north and publicly accessible A3 restaurant/cafe uses at 13th floor level. A conference/events space (Class D1/D2/sui generis) would be provided on the top floors of the secondary tower (levels 14-18). The building will provide a total of 92,123 sq.m. (GEA) of floorspace (84,226 sqm GIA). 10 It is proposed that the building will be formed of four distinct masses of varying heights, with the tallest standing at 168.4 metres AOD. The existing Broadgate Tower (approximately 325 metres to the north east of the site) stands at 178.2 metres AOD. Case history 11 On 30 September 2015 GLA planning officers met with the applicant team and planning officers from the City of London to discuss the proposals for the site. GLA officers advised that the scheme was broadly supported in strategic planning terms subject to an appropriate contribution to off-site housing provision, but that the future application would need to address London Plan policy with respect to urban design, inclusive access, sustainable development and transport. Strategic planning issues and relevant policies and guidance 12 The relevant strategic issues and corresponding policies are as follows: Principle of Development London Plan; Central Activities Zone SPG; Offices London Plan; Central Activities Zone SPG; Mix of uses London Plan; Central Activities Zone SPG; Urban design London Plan; Shaping Neighbourhoods: Character and Context SPG; Strategic views London Plan, London View Management Framework SPG; Historic environment London Plan; World Heritage Sites SPG; Inclusive access 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 London Plan; the Mayor’s Transport Strategy; Crossrail London Plan; Mayoral Community Infrastructure Levy 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 City of London Local Plan 2015 and the 2015 London Plan (Consolidated with Alterations since 2011). 14 The following are also relevant material considerations: page 3 The National Planning Policy Framework, Technical Guide to the National Planning Policy Framework and National Planning Practice Guidance; City of London Corporation Planning Obligations SPD (2014). Central Activities Zone SPG (2016) Principle of development Mix of uses in Central Activities Zone (CAZ) 15 London Plan policies 2.10 and 4.2 encourage the renewal and modernisation of existing office stock in viable locations to improve its quality and flexibility, seeking increases in current stock where there is evidence of sustained demand for office based activities, in order to sustain and enhance the City of London’s role as a strategically important, globally oriented financial and business services centre. The proposal to provide an uplift in office floorspace of approximately 39,000 sq.m. (GIA) in this location is therefore welcomed and supported in strategic policy terms. 16 The proposal would provide approximately 60,800 sq.m. (GIA) of high quality B1 office floorspace in what is envisaged to be a flexible and multi-tenanted building. The applicant has stated the intention to diversify the type of B1 offer through the provision of flexible office space. The main floor levels can be divided into two tenancies per floor. The floorspace thus has the potential to accommodate small and medium enterprises (SMEs) as well as more typical financial, legal and business services, and it is also intended that some of the floorspace would attract tech/digital-creative companies such as those common to the City Fringe area, which is welcomed. The opportunity to rent space on more flexible leases which are considered more amenable to smaller companies would also be encouraged in accordance with London Plan Policy 4.2. The applicant should provide further information on how SMEs would be accommodated within the building, and how leases could be offered flexibly and affordably. The City Corporation should consider securing a proportion of flexible, affordable workspace in the s106 agreement for the scheme, and this information should be provided before the Mayor considers this application again.
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