Pre Application

ADDRESS: St Thomas House and Dunhill Fitness Centre, Lambeth Palace Road, SE1 Pre-application Development Presentation Case Officer: Jeffrey Holt Ward: Bishop’s Date Received: September 2020 Proposal: Demolition of existing buildings and erection of building approximately 31,000 sqm in area and 55m AOD in height to provide an expansion to the existing Evelina London children’s hospital (Use Class C2) along with associated access and public realm. Applicant: Guy’s and St Thomas’ Trust Agent: Montague Evans

RECOMMENDATION

1. That, having heard a Pre-application Development Presentation on behalf of the applicant and individual Members of the Committee having had the opportunity to ask questions and to highlight to the applicant issues that may require further consideration, the contents of this report, the Presentation and any discussion of the item in the meeting be duly noted by the Committee.

SITE DESIGNATIONS

Relevant site designations: Central Activities Zone Conservation Area - CA57 : Albert Embankment Conservation Area North Lambeth Archaeological Priority Area Listed Building - Multiple Southbank And Waterloo (SOWN) Neighbourhood Area and Forum London Plan Waterloo Opportunity Area Transport for London Road Network Thames Policy Area LVMF Protected Vistas - Primrose Hill Summit To The Palace Of Westminster - 4A.2 LVMF River Prospect: Westminster Bridge 18A Environment Agency Flood Zone 3

Adjacent to: Archbishop’s Park Site of Local Nature Conservation Importance (SINC) Archbishop’s Park Local Space of Heritage Value Archbishop’s Park Historic Park or Garden Lambeth Palace Gardens Site of Borough Nature Conservation Importance Lambeth Palace Conservation Area

LAND USE DETAILS

Site area (ha): 0.2ha

NON-RESIDENTIAL DETAILS

Use Class Use Description Floorspace (m2) (Gross Internal Area) Existing D1 Medical training facility 924m2 D1 Gym 2,793 m2 Proposed C2 Hospital 28,000 – 30,000 m2

NON-CONVENTIONAL RESIDENTIAL & VISITOR ACCOMMODATION

Bedrooms/Units Floorspace (m2) Existing Hotel Bedrooms Serviced Apartments/Apart-hotel units Proposed Hotel Bedrooms Serviced Apartments/Apart-hotel units Bedrooms Floorspace (m2) Existing Student Accommodation Proposed Student Accommodation Bedrooms Floorspace (m2) Existing C2 212 (in existing Evelina) Proposed C2 Additional 100+ 28,000-30,000 Bedrooms Floorspace (m2) Existing SG Hostel Proposed SG Hostel

PARKING DETAILS

Car Parking Spaces Car Parking Spaces % of Bike Motor- (General) (Disabled) EVCP Spaces cycle Spaces Drop off Staff Drop off Staff Existing 3 0 0 8 TBC TBC - Proposed 5 0 0 2 TBC TBC -

LEGAL SERVICES CLEARANCE

AUDIT TRAIL Consultation Name/Position Lambeth Date Sent Date Report Comments in department Received Cleared para: Susan Boucher, Legal Services 04.01.2020 05.01.2020 05.01.2020 Throughout Lawyer

OFFICER REPORT

Reason for referral to PAC: This item is a Pre-application Development Presentation in accordance with the Planning Applications Committee’s terms of reference.

NOTE: A Pre-application Development Presentation is a presentation to the Committee by an applicant about a development proposal that has not yet been submitted for planning approval. The Committee’s terms of reference provide for the Committee to hear such presentations about strategic development schemes and for individual Members of the Committee to ask questions and highlight issues that may require further consideration by the applicant. Any pre-application proposal that is presented to the Committee will still require a planning application to be submitted and determined in due course. The Committee will not be making any determination of the planning merits of any matters that are presented to it in this Pre-application Development Presentation and accompanying officer report. Observations of the Committee in response to this item may be minuted but will not be binding on the eventual decision-maker. The purpose of this officer report is to provide a brief overview of the site and its planning history, the current development proposal, the pre-application process to date and relevant planning policies.

1 THE APPLICATION SITE

1.1 The site is on the west side of Lambeth Palace Road and is within the St Thomas’ Hospital campus. The triangular site currently contains St Thomas’ House, which is a six-storey 1920s building, and the Dunhill Fitness centre, which is a two-storey post-war building. St Thomas’ House is used for clinical skills training and the Dunhill Fitness centre is a gym for staff and students at the hospital and university.

1.2 The site is immediately adjacent to the Evelina London Children’s Hospital which is withing a purpose- built seven to eight storey building with a large curved glass roof. The building was completed in 2005 and the Evelina moved there from their original site at Guy’s Hospital in Southwark. Access to the Evelina is via a short access street known as Hospital Street, which is off Lambeth Palace Road.

1.3 The site is in the Albert Embankment conservation area. Neither St Thomas House or the Dunhill Fitness centre are statutorily or locally listed. The applicant has applied to Historic England for a Certificate of Immunity from Listing for St Thomas House and the decision is pending.

2 THE SURROUNDING AREA

2.1 St Thomas Hospital first opened in 1871 and has expanded organically over time resulting in a large complex of buildings of varying ages and styles. The original five storey 19th century hospital building occupies the south-west corner of the campus. The northern half is occupied by large post-war modernist blocks between six and 12 storeys high and in the south-east corner are the most recent additions including the seven storey Evelina Children’s Hospital building completed in 2004. The main vehicle access to the hospital, including A&E ambulance access, is off Lambeth Palace Road.

2.2 The surrounding area is mixed in use and urban form, as is characteristic of central London. To the north is the main block of the former County Hall. Country Hall is a Grade II* Listed complex of six to seven storey buildings that was once home to the London Country Council. It is now used for leisure, hotel, residential and commercial uses. The rear blocks are Locally Listed and are in residential and commercial use.

2.3 To the north-east are contemporary buildings up to 18 storeys high in hotel, student accommodation and office use. Further north-east is Waterloo train and Underground station. To the east are smaller post-war housing blocks and some low rise commercial and community buildings. To the south-east is Archbishop’s Park and the private gardens of Lambeth Palace. Archbishop’s Park is a local space of heritage value and Lambeth Palace Garden is a Registered Historic Garden (Grade II). The new eight storey Lambeth Palace Library is nearing completion.

2.4 To the south beyond the gardens is the Grade I listed Lambeth Palace. It consists of a group of ecclesiastical, ceremonial, defensive and residential buildings of varying periods dating back as early as 1435. To the west is the River Thames and on the opposite bank is the Grade I Listed Palace of Westminster and Westminster World Heritage Site.

2.5 St Thomas Hospital is within the Albert Embankment Conservation Area and the Southbank Conservation Area is to the north. The hospital campus has a number of listed buildings and structures:

 Statue of Robert Clayton at the northern entrance to the ward block of North Wing (Grade I)  Bronze Statue of Edward V at the northern entrance to the ward block of the North Wing (Grade II*)  Stone Statue of Edward VI at the northern entrance to the ward block of the North Wing (Grade II*)  ‘Revolving Torsion’ fountain (Grade II*)  15 public benches on the embankment footpath between Lambeth Bridge and Westminster Bridge (Grade II)  River Wall with 36 lamp standards between Lambeth Bridge and Westminster Bridge (Grade II)  Albert Embankment Wall along boundary of St Thomas’ Hospital (Grade II)

2.6 The site is also in the Central Activities Zone, Flood Risk Zone 3, Thames Policy Area, the Waterloo Opportunity Area and the South Bank and Waterloo Neighbourhood Area.

2.7 The site benefits from a public accessibility level of 6b, which is ‘excellent’, due to the proximity of Waterloo train and Underground station, Lambeth North Underground Station to the east and Westminster Underground to the west across Westminster Bridge. There are also numerous bus services nearby. Westminster Bridge Road and Lambeth Palace Road are both part of the TfL Strategic Road Network.

3 SITE PHOTOGRAPHS Figure 1 - Aerial photograph of site (outlined in blue)

Figure 2 - Photograph showing entrance to Hospital Street, St Thomas House and Evelina London (behind)

Figure 3 - Dunhill Fitness Centre (foreground), St Thomas House (background) and Evelina London (right)

4 PROPOSAL

4.1 Summary of the Proposal

4.2 The proposal is for the demolition of St Thomas’ House and the Dunhill Fitness Centre and the construction of a new building to provide additional capacity for Evelina London. The building would reach a height of around 59m AOD and provide approximately 31,000 sqm of space. This would accommodate over 100 inpatient beds, 20 critical care beds and 14 operating theatres as well as space for outpatients, research, staff, families and support functions.

4.3 The existing Evelina building would remain and be connected to the new building. The training facilities within St Thomas’ house will be moved into new facilities that are currently under construction elsewhere on the hospital campus. The fitness centre would not be replaced as it is underutilised and considered to be surplus to requirements.

4.4 The applicant will provide a detailed presentation of the proposal.

5 Planning Performance Agreement

5.1 Guy’s and St Thomas’ Trust has entered into a Planning Performance Agreement with the Council. The PPA secures an enhanced pre-application process with a greater level of engagement. It consists of a number of key meetings:

 Meeting 1 – Developer meets Ward Councillors and planning officers to discuss the scheme and agree consultees and community representatives to invite to subsequent meeting  Meeting 2 – Ward Members and community representatives ask questions and provide comments on the scheme  Meeting 3 – Developer Presentation to PAC

5.2 The following meetings have taken place so far:

 6 October 2020 – Meeting 1  20 October 2020 – Design Review Panel  16 November 2020 – Meeting 2  15 December 2020 – Design Review Panel

5.3 The feedback from the above meetings is provided in Section 9 Consultations.

6 RELEVANT PLANNING HISTORY

6.1 The site has extensive planning history relating to various works to the hospital. Below are some of the more notable applications:

Evelina London Children’s Hospital  00/01685/FUL – Demolition of Riddell House and ancillary outbuildings and construction of nine-storey building to be used as a children’s' hospital – Permitted 24 September 2001.

Lambeth Wing

 13/01999/FUL – Extension and reconfiguration of St Thomas’ A&E department including internal rearrangement and erection of a ground floor glazed entrance and first floor staff facilities – Permitted 20 September 2013.

Block 9 and Prideaux

 16/02387/FUL - Demolition, alteration and refurbishment of existing buildings and structures and erection of new buildings and structures to provide academic and commercially flexible professional floorspace for medical education purposes (Class D1) and/or office space (Class B1) and a café (Class A3); in addition to landscaping and public realms works (including the removal of 3no. trees); alteration to existing and creation of new basements; utility and low carbon energy equipment; alterations to pedestrian access into the site; infrastructure and associated facilities of Block 9 and Prideaux building at the St Thomas Hospital Campus – Permitted 18 July 2016.

 16/02477/LB– Part demolition, alteration and refurbishment of existing buildings and structures and erection of new buildings and structures in association with the proposed redevelopment of Block 9 at the St Thomas Hospital Campus - Permitted 13 June 2016

 20/0084/FUL– Demolition of existing building and redevelopment of the site to provide a part three, part four storey mixed-use development comprising research and development and educational uses and associated enabling landscape and public realm works. Demolition of the external access link between the grade II listed South Wing of St Thomas Hospital (Block 8) and the main entrance to the Prideaux Building development site, creation of new public walkway link and associated façade works to the south elevation of the South Wing (Block 8), demolition of security hut and substation adjoining Block 9 of St Thomas Hospital and associated facade works, demolition of part of boundary wall to Lambeth Palace Road and associated repair work. PENDING.

 20/00885/LB - Demolition of existing building and redevelopment of the site to provide a part three, part four storey mixed-use development comprising research and development and educational uses and associated enabling landscape and public realm works. Demolition of the external access link between the grade II listed South Wing of St Thomas Hospital (Block 8) and the main entrance to the Prideaux Building development site, creation of new public walkway link and associated façade works to the south elevation of the South Wing (Block 8), demolition of security hut and substation adjoining Block 9 of St Thomas Hospital and associated facade works, demolition of part of boundary wall to Lambeth Palace Road and associated repair work. PENDING.

The Core Building

 19/01397/FUL – Demolition of existing single storey hospital building and erection of a new six storey (including plant level) hospital building (C2 use), alterations to existing access arrangements and associated public realm works. Permitted 21 December 2019

Temporary SaIL Facility

 20/02011/FUL – Erection of two storey temporary Simulation and Interactive Learning (SaIL) facility for five years together with alterations to existing access arrangements and associated public realm works. Permitted 20 August 2020

7 CONSULTATIONS

7.1 Pre-application consultation has been undertaken by the Council as part of the enhanced PPA service and separately by the applicant.

7.2 Meeting 1 – Meeting with Ward Members

7.2.1 On 6 October 2020 the Council hosted a meeting between the applicant and ward councillors. The applicant presented the emerging proposal in detail and invited comments. No initial concerns were raised by ward councillors and recommendations were made on which local stakeholders to target for the next stage of engagement.

7.3 Design Review Panel

7.3.1 On 20 October 2020 the proposal was presented to the Design Review Panel. Below is the summary of the Panel’s advice:

 Hopkins’ Evelina Hospital (i.e. the existing hospital building) needs to inform the approach to architecture, materials and outlook. The experience of the hospital users at atrium level needs careful consideration.  An understanding of the effect on verified views is key going forward. The effect on views from Westminster Bridge is particularly sensitive given massing.  Panel generally supportive of the approach proposed to façades and materials. These need careful development in relation to detailing, finishes, solar consideration, visual interest etc.  The proposed activation street elevation to Lambeth Palace Road warmly welcomed, so too is the aspiration for further greening/pedestrian improvements here.  The role of the new entrance, its treatment and appearance will be important going forward.

7.4 Meeting 2 - Meeting with local representatives

7.4.1 On 16 November 2020 the Council hosted a meeting to allow the applicant to present the emerging proposals to a number of key local stakeholders. The following groups attended the meeting:

 Church of England  WeAreWaterloo  Southbank and Waterloo Neighbours  Westminster Society

7.4.2 The following questions and comments were raised:

 The relationship between the new building and the existing Evelina building  The number of staff, patients and visitors are expected and the associated impact on the local economy and on the transport network  The accessibility of the new building  Access onto Lambeth Palace Road and the potential for a new crossing  Whether this development forms part of a wider masterplan  What sustainability targets the development is aiming for and what sustainability measure would be implemented  How the building would have a positive impact locally

7.5 Second Design Review Panel

7.5.1 On 15 December 2020 the proposal was put before the Design Review Panel a second time to allow the Panel review the evolution of the scheme. The Panel were supportive of the scheme overall:

 The lack of a masterplan for the hospital campus - with a clear rationale for why the choice of site and size of the new facility - is regrettable. However, the need for the hospital extension is accepted and the need to integrate with the existing Evelina building understood.  Given the size, the relationship with the river frontage and listed hospital building in foreground, as part of a ‘family’ of 3 hospital buildings, need careful consideration to minimise dominance.  The façade approach is strongly supported. The need to balance calmness and interest is understood. Encourage design development in line with panel’s detailed advice – degree of simplicity, materiality, weathering etc.  Art work at Evelina atrium level welcome. Needs careful integration into the facade.  Maintenance implications of whole-life costs important.  A clearer strategy for Lambeth Palace Road should be explored with TfL and following TfL meeting.  Further design development on Hospital Street to ensure adequate pedestrian experience is essential. How this flows into the internal foyer space needs to be fully understood.  Effective wind mitigation on the roof terrace is very important.  Panel would welcome opportunity to see the façade detailing prior to submission.

7.6 Consultation undertaken by the applicant

7.6.1 In addition to the above meetings the applicant is undertaking their own public consultation. To date the following have been undertaken:

 Set up of dedicated website www.evelinalondonisgrowing.co.uk  Distribution of newsletter to 2,900 household and business addresses by post  Three online consultation events

7.6.2 58 people registered and 41 attended the three online consultation events. 23 feedback have been received to date. 68 per cent of respondents stated that they support the plans for the new hospital building. Respondents also mentioned the need for coordinated construction management with neighbouring landowners, interest in the public realm and landscaping proposals and assertions that the deign should reflect its local setting.

8 Key Planning Issues

 Land Use – the expansion of healthcare and the development strategies of St Thomas’ Hospital to achieve the highest quality facilities are supported by the Local Plan

Relevant policies: Policies S2 and PN1 of the Lambeth Local Plan; Policy 3.17 of the London Plan; Policy S2 of the draft London Plan

 Design – a significant amount of floorspace is required to deliver the required facility and the site is very constrained. The building will need to be of the highest design quality.

Relevant policies: Policies Q1, Q3, Q4, Q5, Q6, Q7, Q8, Q9, Q10, Q26 of the Lambeth Local Plan; Policies 7.2, 7.3, 7.4, 7.5, 7.6, 7.7 and 7.21 of the London Plan; Policies D1, D3, D4, D5, D8, D9, D11, D12 of the draft London Plan.

 Conservation – the site is in a conservation area and in the settings of the Westminster World Heritage Site, a number of listed buildings and a registered park. It is also within a number of key views.

Relevant Polices: Policies Q19, Q20, Q21, Q22, Q23 of the Lambeth Local Plan; Policies 7.8, 7.10 and 7.12 of the London Plan; Policies HC1, HC2, HC3 and HC4 of the draft London Plan.

 Transport – the expansion of the hospital will result in increased numbers of patients, staff and visitors. The development will need to accommodate drop offs from ambulances, patient transport and private vehicles.

Relevant Policies: Policies T1, T2, T3, T4, T6, T7, T8 of the Lambeth Local Plan; Policies 6.3, 6.9, 6.10 and 6.13 of the London Plan; Policy T2, T4, T5, T6, T6.5, T7 of the draft London Plan

 Sustainability – the development will need to meet the latest standards for sustainability including those for carbon emissions, flood risk, drainage, urban green and ecology

Relevant policies: Policies EN1, EN3, EN4, EN5 and EN6 of the Lambeth Local Plan; Policies 5.2, 5.3, 5.6, 5.7, 5.9, 5.10, 5.11, 5.12 of the London Plan; Policies G1, G5, G6, G7, SI1, SI2, SI4 and SI12 of the draft London Plan

9 Next Steps

9.1 Officers will continue to work with the applicant to develop the scheme. The applicant is aiming to submit the application in March/April 2021.

10 RECOMMENDATION