Committee(s): Date(s): Planning & Transportation 26 November 2013 Policy and Resources 12 December 2013 16 January 2014

Subject: Adoption of the West Smithfield Area Enhancement Strategy Report of: Director of Built Environment Public/For Decision Wards: , Farringdon Without and Summary This report seeks approval for the adoption of the revised West Smithfield Area Enhancement Strategy and to inform Members about the recently undertaken public consultation and revisions to the Strategy. Copies of the Strategy and the consultation responses are available in the Member‟s Reading Room.

The City has adopted several Area Enhancement Strategies as mechanisms for delivering public realm improvements in areas of significant change, including the Riverside, , Barbican and most recently & , Fenchurch & Monument, Bank and Street Area. The plan in Appendix B shows the current coverage of the City by Area Enhancement Strategies.

The Strategy has been developed to provide improvements to the public realm in the West Smithfield area. New developments and Crossrail will lead to increasing numbers of pedestrians using the streets. The Strategy will provide an improved, accessible and functional pedestrian environment that would support the projected increased pedestrian footfall, whilst supporting the activity of Smithfield meat market and the continuing operation of Bart‟s Hospital. For example, amongst other things, it includes the creation of more space for pedestrians, measures to improve road safety in the area and additional public spaces, seating and tree planting where appropriate. Also, the strategy identifies current issues and future demands and sets out a framework for addressing these within the context of existing policies and guidance.

A public consultation on the strategy was undertaken from October to December 2012. Responses were generally positive and several changes have been made to the strategy document to take comments into account. The revisions relate mainly to:  The importance of providing accessible streets.  Road safety in the area.  The importance of the green spaces in the area.  The importance of maintaining a functional environment for Smithfield Market.  Maintaining parking levels to existing standards and enabling access to business premises.

Proposals have been grouped into high, medium and low priorities in the delivery plan for the strategy. It is anticipated that funding for these will be from external sources such as Section 106, Section 278, the Community Infrastructure Levy (CIL) and Transport for . If the strategy is approved, delivery of the schemes will be initiated through the project gateway process broadly in the priority order set out.

Funding totalling £7m has been identified towards enhancement projects for the Strategy area through existing Section 106 and Section 278 agreements related to the Barts Close development. A gateway 2 report for Bartholomew Close Environmental Enhancement has been approved as part of the Environmental Enhancement: Projects Programme report submitted to Planning & Transportation Committee, 14 May 2013 and Projects Sub-Committee, 16th May 2013.

Recommendation It is recommended that: (i) The West Smithfield Area Enhancement Strategy is adopted.

Main Report Context 1. The West Smithfield area is located to the north-west of the City, sharing a boundary with the London Borough of Islington to the north and the London Borough of Camden to the west (Please refer to Appendix A). The area has a distinctive mixed use character with a strong residential component. Key local institutions are Smithfield meat market and St. Bart‟s Hospital.

2. Smithfield-Farringdon has been designated as an Area of intensification in the London Plan (2011) and it is considered that further economic growth and employment can be supported in the area. Crossrail Farringdon East, opening in 2018, will become a major public transportation hub, and will bring increasing number of people to the area. The area is also identified in the City‟s Core Strategy as one of the key areas of significant change and challenge that is subject to increased pedestrian flows as a result of Crossrail.

3. The area enhancement strategy has been developed to provide improvements to the public realm in order to accommodate future growth. It will provide an improved and fit for purpose vehicle and pedestrian environment that would support the increase pedestrian footfall in the area, whilst supporting the activity of Smithfield meat market the continued operation of St Bart‟s Hospital.

4. There are many observed issues and pressures for change within the West Smithfield area, particularly relating to accommodating future growth. Identified pressures include:  There will be significantly more pedestrian footfall, cycle and vehicle movement through the West Smithfield area as a result of the new Crossrail Farringdon East station. The number of pedestrians on Lindsey Street/Long Lane will increase from the current flow of an estimated 1,000 persons in peak hours/weekday to 2,800 persons in the same period by 2026 (Crossrail figures).

 Accessibility is one of the main issues in the area. Many streets have very narrow footways as a result of the medieval street pattern, making them inaccessible for wheelchair and disabled users, often forcing people into the carriageway.

 The redevelopment of St. Bartholomew‟s Hospital (under construction) and Bartholomew Close redevelopment.

 Security and road safety is an increasingly important issue in the area as result of its 24 hour activity. The evening and night-time economy is becoming increasingly active with more restaurants, bars and clubs attracting visitors. This is causing growing concern in the area among residents, business occupiers and Smithfield Market, particularly in relation to cleansing, anti-social behaviour and vehicle movement.

5. Area Enhancement Strategies have previously been prepared for parts of the City to deliver improvements to the public realm including Cheapside, the Eastern City Cluster and most recently Aldgate & Tower, Fenchurch & Monument, Bank and Liverpool Street Area. The coverage of the City by Area Enhancement Strategies is shown on the plan attached at Appendix B.

The Strategy 6. The preparation of an area strategy for West Smithfield was instigated as a result of the proposed development of Bartholomew Close and the construction of Crossrail Farringdon East Station. The adoption of an area based approach was needed in order to respond to the changing nature of the area and accommodate future growth. 7. The strategy includes many elements of the, “Farringdon Urban Design Study” completed in 2010 and managed by Design for London in partnership with the , Network Rail, Transport for London, English Heritage, Crossrail, the London Borough of Camden and London Borough of Islington.

8. The West Smithfield Area Enhancement Strategy is a comprehensive document that provides a clear framework for the future of the public realm. The objectives are to address current problems, ensure the area is able to accommodate future growth and to create a successful and sustainable public realm which reflects the City‟s position as a world class financial, business and cultural centre. 9. The area strategy includes a range of street scene improvements, whilst preserving and enhancing heritage assets and addressing pressures for change. The strategy covers the following themes: Accessibility and Movement: • Creating more space for pedestrians, particularly on routes that are impacted by Crossrail; (Long Lane, Lindsey Street and Hayne Street). • Implementing access improvements and safe pedestrian crossings throughout the area, primarily on Grand Avenue, West Smithfield, and Little Britain. • Considering measures to improve road safety. • Creating new and improved access points to public gardens, such as Postman‟s Park and the Rotunda Garden.

Public Spaces • Creating new and enhancing existing public spaces, such as at Bartholomew Close, and considering the removal of the ambulance station south of the rotunda to create a new public square. • Rationalizing street furniture and provide opportunities for seating where appropriate. • Adding interest to the public space through art installations. • Ensuring that any improvements take account of the historic character of the area.

Planting and Open Spaces • To plant individual trees at key junctions and streets, subject to their impact on heritage assets, enhance quiet and tranquil areas, reduce noise pollution and enhance biodiversity.

Courtyards and Alleys • To improve accessibility throughout the area, whilst taking account of the historic character of the area, in line with the Smithfield Conservation Area; Character Summary & Management Strategy SPD.

10. An Equality Impact Assessment (EQIA) has been carried out for the Strategy and it is considered to have positive impacts upon the users of the City‟s streets and spaces. 11. All projects identified within and arising from the Strategy will be subject to detailed options appraisal, targeted consultation and reporting via the relevant Committee processes.

Public Consultation Exercise 12. In July 2012, the draft West Smithfield Area Enhancement Strategy was reported to the Planning & Transportation Committee and approval was given for a public consultation exercise on the Strategy. 13. The public consultation was undertaken from October to December 2012 and 40 written submissions were received. All submissions have been collated and are available in the Member‟s Reading Room or electronically upon request. 14. This consultation was carefully targeted to ensure that the views of relevant stakeholder groups were gathered. A variety of consultation methods were utilised including: • Direct consultations with the main stakeholders, regulatory agencies and the Corporation‟s statutory consultees. • City of London website - West Smithfield Area Enhancement Strategy webpage with a link to return comments on the draft Strategy via e-mail. • Stakeholder meetings: Smithfield Market Tenants Association, Smithfield Market Superintendent, Haberdasher‟s , Butchers Livery Company, and residents of the Bartholomew Close area. • Letters and consultation leaflets to all residents and businesses in the area. • Emails and briefing sessions with Ward Members. • City AM article (hard copy, Thurs 13th September 2012). • City Resident article (hard copy, Issue 27 – Autumn/Winter 2012). • City View article (online, October 2012 edition). • Hard copies of the draft Strategy were provided for information in the Guildhall Library and Guildhall North Wing (Planning reception). • Link on the weekly City Traffic Management Bulletins. • On-street information node signs throughout the Strategy area. • Door- to-door survey of retail units.

Responses to the Public Consultation and proposed changes to the Strategy 15. The majority of comments were received via email to the West Smithfield Area email address and written letters were received in response to the consultation leaflet. All submissions have been collated and are available in the Member‟s Reading Room or electronically upon request. 16. The overall response to the draft Area Enhancement Strategy has been positive and the proposals have largely been well received by the local community. Many respondents provided detailed comments that have assisted in prioritising and refining the projects identified within the Strategy. 17. The three most common themes raised in the consultation were: • Pedestrian environment and accessibility. • Road safety, speed of vehicles and general vehicle movement. • Historic character and enhancing green spaces.

18. Meetings were held with key stakeholders and their responses can be summarised as follows:  Smithfield Market Tenants Association and Smithfield Market Superintendent: The importance of maintaining a functional environment for the market and maintaining parking levels and loading bays. The need to allow enough space for large vehicles in relation to footway widening proposals.

 Haberdasher’s Livery Company: maintaining parking levels to existing standards and enabling access to the Hall and business premises. Overall, positive comments were received; particular support was given to the proposals to consider a -link into the Rotunda garden from the south side and the removal of the ambulance station to create a new public space.

 Butchers Livery Company: maintaining parking levels to existing standards and enabling access to business premises, including servicing, delivery and other requirements.

The main comments received and changes to the document are summarised as follows: 19. Pedestrian and Street environment Comments Received:  The lack of dropped kerbs and the need for an accessible street environment was highlighted, particularly in the context of the Hospital and Doctors surgery and the residential clusters.

 A number of responses expressed the need to improve pedestrian safety, and access throughout the Strategy area and supported the proposal to increase footway widths along busy streets, such as Long Lane and the area around Barbican Station.

 Many people raised issues about road safety concerns, particularly in relation to crossing Long Lane, West Smithfield, Smithfield Street and East Poultry, due to its width and the speed of vehicles travelling along it.

 The proposals for the extension of footway space to improve the pedestrian environment and capacity were largely welcomed. However, some concerns were raised that the proposed footway widening may have a negative implication on the operation of the meat market.

 A significant number of responses were received in relation to the pedestrian crossing and links to the Rotunda Garden. The proposal for a new pedestrian-bridge link on the south side of the Rotunda Garden was well supported.

Amendments to the Strategy in response to comments:

In response to the above points, improvements to provide an accessible street environment have been prioritised in the delivery plan. The Strategy has been amended to make it clear that proposals should take the working meat market and its needs into account. Any footway widening will also need to take account of parking and loading requirements and the needs of other road users. The area around Barbican station will be included as a site in need for enhancement.

20. Cycling Comments Received:  A few responses commented that the draft Strategy did not account adequately for cycling needs and increased footway widths would impact on cycle safety.  Concerns were raised on the conflict between pedestrians and cyclists along Grand Avenue, Cloth Fair and Little Britain.

Amendments to the Strategy in response to comments:

Any footway widening proposals will need to take account of other road users including cyclists. There is clear evidence that the pedestrian environment needs improving; however this will not be undertaken without consideration for the needs of cyclists or road users safety. The traffic demands and the implications for all road users will be carefully reviewed as part of the detailed design of the proposals.

21. Spaces/Greenery Comments Received:  The consultation confirmed the importance of green spaces for the local community.  Widespread support was received for the enhancement of the few existing open spaces within the Strategy area, whilst maintaining their historic character.  The provision of street trees and greenery in this area was well supported.

 Negotiation the removal of the ambulance station to provide a new and improved public space was strongly supported.

Amendments to the Strategy in response to comments: In response to the above comments, the strategy has been amended to emphasise the importance of enhancing the existing public green spaces in the area. The priority of the consideration of removing the ambulance station has been increased to medium from low in the delivery plan.

22. Vehicle movement and servicing: Comments Received:  Additional traffic calming measures were specifically requested along East Poultry Avenue, Smithfield Street and Long Lane to slow down vehicles.  Not enough on-street parking and loading bays was a concern of some users.

 Responses stressed the fact that if the pedestrian environment was to be improved and footways widened, loading bays should be integrated in the proposals along with disabled parking.

Amendments to the Strategy in response to comments: The proposals for these areas will highlight the need to improve road safety and this will be a key objective as schemes are developed. This feedback has been forwarded to City Transportation team for consideration as part of the Road Danger Reduction Plan. As schemes are developed, loading and parking requirements will also be key considerations.

23. Historic Character:

Comments Received: • The consultation confirmed the importance of maintaining the historic character of the area, particularly around the Bartholomew Close development, alleyways and lanes. • Comments were received in relation to the difficulty in navigation around the streets and the accessibility constraints given the tight medieval street pattern.

Amendments to the Strategy in response to comments:

In response to this, proposals to improve accessibility and the wider public realm will be carefully designed so that they do not have a negative impact on the historic character of the area.

24. Other General Comments:  The lack of provision of public toilets, despite provision in the Rotunda.  Antisocial behaviour was not identified as a serious issue.  Improvement of street lighting primarily, along main pedestrian routes and alleyways was desirable.  General support for de-cluttering of footways (removal of bollards where possible).  Value for money considerations: there were some comments received regarding cost implications for the proposals.

Implementation Framework and Funding Strategy 25. The West Smithfield Area Enhancement Strategy sets out a Delivery Plan (Appendix C) which identifies projects arising from the Strategy. The projects will be delivered according to priority level (High, Medium and Low priority categories) and progressed as appropriate funding is identified and released. 26. The High Priority projects include accessibility improvements and street scene improvements related to the associated Section 106 and Section 278 agreements (estimated contribution £7m) from the Barts Close development. 27. It is anticipated that the funding for improvement projects arising from the Strategy, will be externally provided via Section 106 and Section 278 agreements and Community Infrastructure Levy (CIL) contributions from future developments within the area. Funding bids will be made to external bodies such as Transport for London. 28. Any projects arising from the Strategy that are not currently identified within the City‟s financial forecasts will be subject to further approval based on the prioritisation of the proposals and availability of funding sources.

Financial Implications 29. The consultant‟s fees to develop the area strategy document and City of London staff costs of £17,000 were fully funded by the developer of Bartholomew Close, Helical Bar.

Corporate & Strategic Implications 30. Corporate Plan: The strategy will support the delivery of the Strategic Aims : „To support and promote the City as the world leader in international finance and business services‟ by ensuring that the area is fit for purpose in terms of function and environment and is able to accommodate future growth. „To provide modern, efficient and high quality local services and policing within the square mile for workers, residents, and visitors whilst delivering sustainable outcomes‟ by providing a fitting and functional local environment that supports sustainable transport and promotes the cultural and historic identity of the City‟.

31. The Core Strategy: The City‟s Core Strategy identifies 5 Key City Places as key areas of significant change and challenge. The West Smithfield Area, lies within the North of the City, Key City Place (policy CS5). The objectives and key principles of the Area Enhancement Strategy aim to reflect and address this evolving and challenging local context.

Conclusion 32. The West Smithfield Area Enhancement Strategy is based on evidence of need and requirements for future sustainable growth. The Strategy document sets out a clear framework of proposals for the improvement of the public realm within this area. 33. The Strategy is linked to and informed by, the City‟s Core Strategy and emerging Local Plan, urban analysis and public consultation. The objectives and proposals of the Strategy develop further the objectives contained within the London Plan, the Mayor of London‟s Transport Strategy, the City‟s Corporate Plan‟s and the Department of the Built Environment Departmental Business Plan. 34. The Strategy has been revised in response to the public consultation feedback to ensure the document reflects the needs of the City community. It sets out a Delivery Plan which identifies the projects arising from the strategy, prioritises them and indicates the funding strategy for delivery. 35. It is recommended that Members adopt the revised West Smithfield Area Enhancement Strategy.

Appendices Appendix A: West Smithfield Area Enhancement Strategy Boundary Plan Appendix B: CoL Area Enhancement Strategies Map Appendix C: Delivery Plan

Background Papers  Bank, Fenchurch & Monument, Liverpool Street and West Smithfield draft Area Enhancement Strategies – Pre-consultation report for Planning & Transportation Committee, 24th July 2012. Author

Maria Herrera Project Officer (Environmental Enhancement) 020 7332 3526 [email protected]

Appendix A - West Smithfield Area Enhancement Strategy Boundary

West Smithfield Area

Appendix B - CoL Area Enhancement Strategies Map

Appendix C – Delivery Plan (The costs are estimates, based on similar schemes and current industry rates for comparable works). Priority Scheme Cost Funding strategy Target (£)

High Priority High Accessibility improvements: £750 - £900K S106 2014-2017 Including widened footways, improved S278 crossings, clutter removal. CIL Priority areas (lanes and alleyways): • Cloth Fair • Middle St • Kinghorn St • Newbury • Bartholomew close • Rising Sun court • Half Moon court • Braidwood passage • East passage • Cloth Street High Bartholomew Close area, (Barts £7.0m S106 2014-2019 Close) Improvements to pedestrian S278 environment; widening footways, (Bartholomew Close rationalising street furniture, raised development) pedestrian crossings and public realm enhancements.

High Cross rail related projects: provide £2.5 – 3m S106 2014-2018 safe pedestrian crossings, widen S278 footways, and raised tables. CIL Opportunities to integrate parking and TfL loading bays into the footway design. Crossrail • Long Lane/West Smithfield • Grand Avenue/Long Lane • Lindsey Street • Hayne Street

High Bartholomew Hospital area: £300K - S106 2014-2016 Improve access routes and £400K S278 pedestrians crossings at key locations. (Re-development of Bart‟s Hospital)

High Improve Cycling networks: £150K- S106 2014-2018 Across the West Smithfield Area, to £250K S278 explore ‘quiet way’ cycle routes and CIL provide additional cycle parking where possible. (Subject to a transport impact assessment)

Medium Priority Medium Rotunda Garden: £1.5 – 2.5 m S106 2016-2018 Creating a pedestrian bridge on the S278 south of the garden to create a direct CIL route to . Opportunities Other external for improving the pedestrian crossings funding sources to and from the garden.

Medium Removal of Ambulance station: £1.5 – 2.5 m S106 2016-2018 To reconnect the space to the rest of S278 the market place in West Smithfield CIL and create a high quality pedestrian Other external space with controlled parking funding sources opportunities.

Medium Tree planting £75K-£100K S106 2014-2019 In line with the CoL Open Spaces S278 Strategy and Tree Strategy. CIL

Low Priority Low Little Britain south: £500K- S106 2015-2019 Opportunities to create a raised £800K S278 carriageway, with a new entrance to CIL Postman’s Park from Little Britain. Opportunities for street tree planting

Low Smithfield street-General Market £500-£800K S106 2016-2020 public space: S278 Create a new public space that can CIL allow for flexible uses; with tree planting, seating and planting in planters.

Low Giltspur Street: £6000K- S106 2015-2017 Footways could be widened on both £800K S278 sides. CIL TFL

Low West Smithfield-Snow Hill: £400K- S106 2016-2019 To increase footway space and £600K S278 introduce tree planting and seating CIL opportunities. Considering measures TFL to improve road safety.

Low Public art & culture and Lighting £250K- S106 2015-2019 strategy: £450K S278 Integrate a lighting strategy to enhance CIL the historic character and local Other external architecture. funding sources