planning report GLA/4646/01 17 December 2018 Poplar Gasworks, Leven Road in the Borough of Tower Hamlets planning application no. PA/18/02803/A1

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

The proposal Redevelopment of the site to provide a mixed-use development of up to 2,800 residential units and up to 8,771 sq.m. of commercial/leisure floorspace in buildings up to 21 storeys.

The applicant The applicant is St William and the architect is JTP.

Strategic issues Principle of development: The residential-led redevelopment of a redundant gas facility in an existing and emerging Opportunity Area and Housing Zone is supported. The site suffers from constraints to connections across the . The proposal must facilitate the delivery of improved connections across the River Lea and connectivity improvements to justify the quantum of development proposed and ensure the Mayor’s Good Growth and sustainable transport objectives are achieved. (Paragraphs 16-24) Housing: 35% affordable housing by habitable room split 70:30 in favour of affordable rent across the masterplan which is welcomed. The applicant must explore grant funding to further increase the offer. An early review mechanism must be secured in compliance with the Mayor’s SPG. (Paragraphs 26-31)

Design: The optimisation of housing delivery of this site could be supported subject to improved site connections. The general principles of the masterplan are supported. GLA officers will work with the Council and the applicant to ensure the scheme delivers the highest residential and design quality. Parameter plans must be revised to include the safeguarded bridge landing points, and these must be secured in the Section 106. (Paragraphs 32-44)

Transport: The site is isolated in terms of sustainable transport, largely due to its surrounding connectivity barriers in the form of the River Lea, the A12 and the A13. Given the significant uplift in trips generated to and from by the development, cross river connections to are crucial to facilitate active travel to and from the site. To deliver this new connection, GLA officers will work with TfL, the Council and the applicant to secure a financial contribution toward connection improvements. (Paragraphs 52-63)

Further information on Energy and Water required.

Recommendation That Tower Hamlets Council be advised that while the application is generally acceptable in strategic planning terms, the application does not comply with the London Plan and draft London Plan, for the reasons set out in paragraph 67 of this report; but that the possible remedies set out in that paragraph could address these deficiencies.

page 1 Context

1 On 23 October 2018 the Mayor of London received documents from Tower Hamlets 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 must 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 1A, 1B and 1C of the Schedule to the Order 2008:

• ‘1A: Development which comprises or includes the provision of more than 150 houses, flats, or flats and houses.

• 1B: 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: c) outside and with a total floorspace of more than 15,000 square metres.

• 1C(c). Development which comprises or includes the erection of a building… more than 30 metres high and is outside the ”.

3 Once Tower Hamlets 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) Regulations 2017 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 site was previously used for the production and storage of gas and operated by National Grid. The site comprises 8.2 hectares and is currently being used for low level temporary open storage. The site is located within the emerging Poplar Riverside Housing Zone and Lower Lea Valley Opportunity Area. The site is located within the emerging Poplar Riverside Opportunity Area as identified in the draft London Plan.

7 The site is bound by Leven Road on its south-west boundary, Oban Street to the south- east and the River Lea to the north and north-west. Recent riverside developments adjoining the site at Devon Wharf and Leven Wharf comprise residential developments in buildings of up to 12 storeys in height. In addition, planning permission was granted by the Council in August 2018 for a residential-led mixed use development for 758 residential units in blocks up to 17 storeys on Alisa Street. lies to the south-east of the site.

8 The Public Transport Accessibility Level (PTAL) of the site ranges from 0 to 2 (on a scale of 0-6b where 6b is the highest) indicating very low public transport accessibility. The nearest transport interchange (Canning Town) is beyond reasonable walking distance, as it is 1 kilometre to

page 2 the east of the site. In addition, All Saints DLR station is located around 1.3 kilometres to the south west and Langdon Park DLR station is located around 1.4 kilometres to the west of the site. The nearest bus stops to the site are the Leven Road bus stops that are located on Abbott Road, around 100 metres from the south-eastern site boundary. The nearest part of the Road Network (TLRN) is the A13 , located around 200 metres beyond the southern site boundary. Around 300 metres from the western site boundary is the A12 Northern Approach Road. Planning history

9 On 05 June 2018, a pre-application meeting was held at City Hall. A site visit was then undertaken by GLA, TfL, Council officers and the applicant on 4 July 2018. A follow up pre- application meeting was then held on 23 July 2018. The GLA’s advice report of 20 August 2018 concluded that the principle of development was supported however further discussion is required on the scheme’s viability and the quantum of affordable housing to be delivered. It was noted that the site suffers from constraints to connections across the River Lea. The proposal must facilitate the delivery of footbridges across the River Lea and connectivity improvements to justify the quantum of development proposed and ensure the Mayor’s good design and sustainable transport objectives are achieved. In addition, issues with respect to housing; urban design; inclusive design; transport; and climate change should also be addressed before an application is submitted to the local planning authority.

Details of the proposal

10 The applicant has submitted a part detail/part outline hybrid planning application for the redevelopment of the gasholder site to provide a mixed-use development of up to 2,800 residential units and up to 8,771 sq.m. of commercial/leisure floorspace in buildings up to 21storeys.

11 Phase 1 of the scheme is in detail and contains 580 residential units and 6,271 sq.m. of flexible commercial/community floorspace. The remaining phases 2-4 have been submitted in outline and will be subject to parameter plans to enable the delivery of up to 2,220 homes and 2,500 sq.m. of commercial floorspace.

12 The scheme also includes a 1 hectare riverside park, as well as safeguarded land for a secondary school. Strategic planning issues and relevant policies and guidance

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 Tower Hamlets Core Strategy 2010 and the Tower Hamlets Managing Development Document 2013 and the London Plan 2016 (consolidated with alterations since 2011).

14 The following are also relevant material considerations

• The National Planning Policy Framework; • National Planning Practice Guidance; • Draft London Plan showing early suggested changes (August 2018), which should be taken into account on the basis described by the NPPF; • In August 2017 the Mayor published his Affordable Housing and Viability SPG. This must now be read subject to the decision in R (McCarthy & Stone) v. Mayor of London; • Lower Lea Valley Opportunity Area Framework; and

page 3 • Tower Hamlets draft Local Plan (regulation 19), which should be taken into account on the basis described by the NPPF.

15 The relevant strategic issues and corresponding policies are as follows:

• Opportunity Areas London Plan • Retail London Plan • Housing London Plan; Housing SPG; Affordable Housing and Viability SPG; • Urban design London Plan; Shaping Neighbourhoods: Character and Context SPG; Housing SPG; Shaping Neighbourhoods: Play and Informal Recreation SPG • Access London Plan; Accessible London: achieving an inclusive environment SPG; • Sustainable development London Plan; Sustainable Design and Construction SPG; Mayor’s Environment Strategy • Transport London Plan; the Mayor’s Transport Strategy; Land for Industry and Transport SPG

Principle of development

16 London Plan Policy 4.4 provides a strategic aim for boroughs to adopt a rigorous approach to industrial land management but recognises that managed release may be required to provide other uses in appropriate locations. The draft London Plan identifies a significant loss of industrial land to other uses between 2001 and 2015, well in excess of monitoring benchmarks in the current London Plan, and a positive net demand for industrial land is expected in the 2016-2041 period. Tower Hamlets is identified under Policy E4 of the draft London Plan as a borough that is required to retain its industrial capacity.

17 As noted above, the existing site was previously occupied by the gasholders. With the gasholders being decommissioned and removed, the site’s current function becomes redundant. While utilities sites are defined as industrial land under Policy E4, as set out in paragraph 6.4.5 of the draft London Plan, the principle of no net loss of floorspace capacity when assessing proposals against policies E4, E6, and E7 does not apply to sites previously used for utilities infrastructure. Furthermore, the site is allocated for mixed use redevelopment to provide a strategic housing development, a primary school, public park and other compatible uses (including employment floorspace). The site allocation also seeks to ensure that the redevelopment provides at least the necessary land to facilitate delivery of a new footbridge over the River Lea.

18 The site is within the Lower Lea Valley Opportunity Area, which is expected to accommodate significant growth with a minimum of 32,000 new homes and 50,000 new jobs. The designation of the Poplar Riverside Housing Zone anticipates the creation of a minimum of 6,404 new homes within its lifetime, representing a step change in the expectation for housing delivery in this area. The emerging Poplar Riverside Opportunity Area identifies capacity for 9,000 new homes and 3,000 new jobs.

19 The proposed redevelopment of the redundant gasholders to provide a residential led mixed use development on the site is supported in accordance with the London Plan and draft London Plan. The need for improved connections to support the quantum of development being proposed is discussed further below.

page 4 20 Currently the site suffers severance from the River Lea to the North East, the A12 to the West and the A13 to the South. Whilst the site is approximately 1 kilometre from , these are poor quality, stepped and indirect walking and cycling routes across the River Lea, the most direct link of which is along the A13. Both Langdon Park and All Saints Station are a 15 minute walk to the west but involve, crossing the A12 or A13 (it should also be noted that this route is not step-free). Both the junction of the A12 and A13 and Canning Town Silvertown Way are GLA air quality focus areas.

21 The scheme proposes up to 2,800 units as well as commercial uses and safeguarded land for the future delivery of a secondary school which will result in a substantial uplift in journeys to and from the site. London Plan Policy 2.13 seeks to ensure that development proposals within Opportunity Areas optimise residential and non-residential densities and provide infrastructure to support that growth. Draft London Plan Policy GG3 seeks to ensure that all developments accord with the Mayor’s Healthy Streets approach. In its current form the site is not considered appropriate for this level of development without significant improvements to the walking and cycling connections addressing severance across the wider area and to public transport nodes, as outlined above.

22 Multiple connections are essential for the long term success of the scheme. The Council in conjunction with the GLA and TfL are currently exploring a package of interventions to improve the quality and journey time for walking and cycling connections from the site to Canning Town as part of the work on the Housing Zone as well as connections to the wider Lea River Park connecting the site with Queen Elizabeth Olympic Park. This includes a new bridge from the north of the site to Cody Dock, the A13 connectors project and an additional footbridge between.

23 In accordance with London Plan Policies 2.13, 3.4 and 6.4 and draft London Plan Polices GG2, SD1 and D6, it is considered that improved walking and cycle links to key transport interchanges are essential to unlocking housing potential. Given that the proposal would transform this area from a lower density industrial location to a high density residential led mixed used place with a significant uplift in residents, employees and visitors, it is considered that the site will need improved connections to support the level of development proposed.

24 It is on the basis of the above that a financial contribution from the developer toward the delivery of a connection and/or connections together with the safeguarding of the bridge landing points is considered meet the tests set out in Section 106 of the Town and Country Planning Act and the Community Infrastructure Levy Regulations 2010.

page 5 Housing

25 The proposed unit mix for phase one (the detailed element) is as follows:

Unit type Market Affordable Intermediate Total Housing Rent (shared ownership) Unit Hab Unit Hab Unit Hab Unit Hab unit mix room room room room Studio 71 71 0 0 0 0 71 71 12% One bed 102 204 32 64 2 4 136 272 23% Two bed 295 615 32 96 32 97 269 808 46% Three bed 25 98 44 183 27 113 96 394 18% Four bed 0 0 8 48 8 48 1% Total 403 988 116 391 61 214 580 1,593 177 units (30.5% by unit) 605 hab rooms (38% by hab room)

Affordable Housing

26 London Plan Policy 3.9 seeks to promote mixed and balanced communities by tenure and household income and Policy 3.12 seeks to secure the maximum reasonable amount of affordable housing. Policy H5 of the draft London Plan and the Mayor’s Affordable Housing and Viability SPG set a strategic target of 50% affordable housing. Policy H6 of the draft London Plan and the Mayor’s Affordable Housing and Viability SPG set out a ‘threshold approach’ whereby schemes meeting or exceeding a specific threshold of affordable housing (35% or 50% on industrial/public land) by habitable room without public subsidy and which meets other criteria are not required to submit viability information to the GLA, nor would the application be subject to a late stage review mechanism. Draft London Plan Policy H7 and the Mayor’s SPG sets out a preferred tenure split of at least 30% low cost rent (social or affordable rent, significantly less than 80% of market rent), at least 30% intermediate (with London Living Rent and shared ownership being the default tenures), and the remaining 40% to be determined by the local planning authority.

27 The applicant proposes to deliver 35% of the scheme by habitable room as affordable across the masterplan. As demonstrated above, phase one would contain 38% affordable housing by habitable room. Formed in November 2014, St William is a joint venture between National Grid and the Berkley Group to regenerate a portfolio of sites across London used for utilities infrastructure. St William will unlock technically complex brownfield sites with high site enabling costs. Gas infrastructure has been modernised and rationalised which allows these sites to perform the same function in a more efficient manner. Given these unique circumstances, the provision of 35% affordable housing weighted towards low cost rent housing is supported.

28 An early implementation review must be secured by Section 106 in accordance with Policy H6 of the draft London Plan and the Mayor’s SPG. A draft of the Section 106 agreement must be agreed with GLA officers prior to any Stage 2 referral.

29 As demonstrated above, Phase 1 of the scheme will deliver a tenure split of 65/35 by habitable room in favour of affordable rent. Across the outline phase the applicant has committed to a 70/30 tenure split in favour of affordable rent. The proposed tenure split, which secures a

page 6 minimum of 30% low cost rent and 30% intermediate housing is supported in accordance with Policy H7 of the draft London Plan and the Mayor’s Affordable Housing and Viability SPG. The applicant has confirmed that the intermediate units proposed would be shared ownership which will be secured as affordable to a range of incomes below the upper limit of £90,000 per annum. 50% of the affordable rented units would be London Affordable Rent, with the remaining 50% to be let at Tower Hamlets Living Rent.

30 The affordability of the units accords with the Council’s definition of affordable rent and the requirements of Policy H7, the Mayor’s Affordable Housing and Viability SPG and the London Plan Annual Monitoring Report. The affordability of the intermediate units should be informed by the Mayor’s qualifying income levels, as set out in the Mayor’s Affordable Housing and Viability SPG, and the London Plan Annual Monitoring Report. Rent levels and assumptions must be secured accordingly by the Council in the Section 106 agreement.

31 The applicant must investigate the potential for Mayoral grant funding (or any other available public subsidy) with a view to further increasing the affordable housing offer in accordance with draft London Plan Policy H6 and the Mayor’s Affordable Housing and Viability SPG.

Residential Quality and housing mix

32 London Plan Policy 3.5 and Policy D4 of the draft London Plan promotes quality in new housing provision, with further guidance provided in the Housing SPG. In accordance with strategic priorities, it is essential that schemes deliver the highest standard of residential quality, and baseline standards are exceeded wherever possible. In relation to the detailed component, all units meet or exceed the relevant space standards, with external amenity provided in the form of balconies. GLA officers will work with the applicant and the Council to amend layouts to ensure all housing standards are met or exceeded. As raised at pre-application stage, unit to core ratio exceeds the standard of eight units per core in a number of locations which should be addressed through the provision of an additional core in Block C. In addition, opportunities to optimise the number of dual aspect units (which could be done through the provision of through units at ground floor and at the end of corridors) as well as improvements to the outlook of several units must be fully explored.

33 Given the hybrid nature of the application, the majority of the plots are not fully designed and would come forward as reserved matters applications, controlled through the Design Code. As such it will be expected that key principles will be set at this stage through the control documents namely the Parameter Plans and Design Code. These documents should provide clear guidance on aspects such as residential cores and individual entrances, residential layouts and active frontages. Further discussions are required to ensure the Design Code and Parameter Plans incorporate the necessary level of detail and clarity.

34 London Plan Policy 3.8 and draft London Plan Policy H12 encourage a full range of housing choice. Draft London Plan Policy H12 recognises that central or urban sites may be most appropriate for schemes with a significant number of one and two beds, whilst draft London Plan Policy H12 recognises that the number of family sized affordable homes provided should be driven by local and strategic need. Phase 1 would deliver 45% of affordable rented units as family sized units which is supported. The Council must secure an indicative housing mix in relation to the outline element of the scheme.

Children’s Playspace

page 7 35 Policy 3.6 of the London Plan and Policy S4 of the draft London Plan, seeks to ensure that development proposals include suitable provision for play and recreation. Further detail is provided in the Mayor’s Supplementary Planning Guidance (SPG) ‘Shaping Neighbourhoods: Play and Informal Recreation’ which sets a benchmark of 10 sq.m. of useable child play space to be provided per child, with under 5’s play space provided onsite as a minimum.

36 In relation to Phase one the total play space required based on the guidance set out in the SPG is 1,960 sq.m. with 1,207 sq.m. required for doorstep play. The applicant proposes 2,314 sqm within Phase 1 including 1,207 sqm of doorstep play which exceeds the SPG requirements and is supported. The Council must secure details of the on-site play space, and phased delivery, by condition.

Urban design

37 The design principles in Chapter Seven of the London Plan and Chapter 3 of the draft London Plan place expectations on all developments to achieve a high standard of design which responds to local character, enhances the public realm and includes architecture of the highest quality that defines the area and makes a positive contribution to the streetscape and cityscape.

38 London Plan Policy 3.4 and draft London Plan Policy D6 seek to optimise the potential of sites, having regard to local context, design principles, public transport accessibility, and capacity of existing and future transport services. The higher the density of a development, the greater the level of design scrutiny that is required, particularly qualitative aspects of the development design, as described in draft London Plan policies D2 and D4. Should the proposal deliver the maximum proportion of residential units it would have a density of approximately 467 units per hectare. This exceeds the guidance ranges contained in Table 3.3 of the London Plan (based on the sites PTAL of 0-2) and is above the thresholds for increased scrutiny of design quality set out in the draft London Plan. As discussed above, the site suffers from constraints to connections across the River Lea. Given the high-density nature of the scheme on a site of low accessibility, the scheme must deliver improved connections to would enable the site to come forward to in a manner that realises its full potential.

39 In order to future proof the required across-river connections, the parameter plans must be revised to include the safeguarded bridge landing points to demonstrate that the building footprints would not encroach into the safeguarded land.

40 The above issues with site connections notwithstanding, the general principles of the masterplan are supported. The area is divided into two distinct character areas, the yards to the south which respond to the surrounding urban grid and the riverside, which is more organic in form with development opening up to take in river views. The river frontage is a key asset to the site, and in turn to the wider area. At present, this asset is not visible from the surrounding area, and the proposal will improve legibility through opening up views and wayfinding which is welcomed.

41 In addition, and again subject to resolution of issues with wider connections and residential quality outlined in this report, the general principles of the height and massing are supported as they would have a positive impact on townscape creating a strong and attractive river frontage, marking the transition of the area from industrial uses to residential.

42 The applicant proposes that brick will be the primary elevation material which is supported. With regards to the outline portion of the application, when assessing reserved matters the Council should ensure the proposal retains the simple palette of material and avoids unnecessary articulation. Focus should be on the quality of the detailing and proportions of window and balcony openings, together with bringing out the residential cores as a feature.

page 8

43 In accordance with paragraph 3.76 of the London Plan and Policy D4 of the draft London Plan the quality and robustness of materials and architectural detailing must be consistent across all residential elements of the scheme irrespective of tenure. These details should be secured by condition.

44 In accordance with Policy D11 of the draft London Plan, the Council should secure an informative requiring the submission of a fire statement, produced by a third party suitable qualified assessor. Inclusive Access

45 In accordance with London Plan Policy 3.8 and Draft London Plan Policy D5, all of the residential units will meet Building Regulation M4(2) standards and 10% of the units will be designed to be fully adaptable and adjustable to wheelchair users (M4(3) standards). The Design & Access Statement for the detailed component specifies where the accessible units will be located and confirms that a variety of unit sizes will be provided to enable choice for disabled people. The Council should secure compliance with Building Regulations M4 (2) and M4 (3) by condition, for both the detailed and outline components of the scheme Environment

Energy

46 In accordance with the principles of London Plan Policy 5.2 and Policy SI2 of the draft London Plan, the applicant has submitted an energy statement, setting out how the development proposes to reduce carbon dioxide emissions. In summary, the proposed strategy comprises: energy efficiency measures (including a range of passive design features and demand reduction measures); and a site heat network. The applicant has discounted renewable technologies in the form of PV panels which is contrary to London Plan and draft London Plan Policy and the feasibility of this must be investigated. The approach proposed would achieve a 59% carbon dioxide reduction on the residential elements and a 38% carbon dioxide reduction on the commercial elements.

47 The applicant must submit additional detail on energy savings as per the detailed energy comments which have been sent directly to the applicant. The savings for the domestic and non- domestic uses should be reported separately for detailed and outline elements.

48 The carbon dioxide savings for both the domestic and non-domestic elements of the scheme fall short of London Plan and draft London Plan targets. The applicant must explore the potential for additional measures to deliver further carbon dioxide reductions. Once all opportunities for securing further feasible on-site savings on the domestic elements have been exhausted, a carbon offset contribution should be secured to mitigate any residual shortfall.

Water

49 The Flood Risk Assessment provided for the proposed development does not comply with London Plan policy 5.12 and draft London Plan policy SI.12, as it does not give appropriate regard to required setbacks from flood defences. A revised Flood Risk Assessment that states how residual breach flood risk is addressed must be submitted.

50 The surface water drainage strategy for the proposed development generally complies with London Plan policy 5.13 and draft London Plan Policy SI.13. The Applicant must clarify discharge

page 9 rates, provide a stronger commitment to other SuDS measures and provide additional information to explain how exceedance has been considered.

51 The sustainability statement indicates that the proposed dwellings will have a maximum indoor water consumption of 105 l/person/day, in line with the optional standard in Part G of the Building Regulations, and compliant with policy 5.15 of the London Plan and draft London Plan policy SI.5. This is supported.

Transport

52 Canning Town is the nearest town centre to the development site although no part of the site is within reasonable walking distance of it (no more than 960 metres). In addition, there are several other constraints to the connections to Canning Town including that the route via Lanrick Road / north A13 footway is not step free and that the A13 and slip road has a poor environment, perceived safety, and air quality concerns. Given the relative isolation of the site location, the creation of a new high density mixed used neighbourhood at this site must deliver a step change in connectivity. Without this the development will be isolated from sustainable transport networks and unable to support the car free lifestyle required by the Mayor’s Transport Strategy. This required step change is integral to achieving a healthy, permeable, sustainable development that is aligned to the Mayor’s Good Growth agenda.

53 Therefore, the proposed level of development in this relatively inaccessible location (PTAL 0-2) raises concerns in relation to draft London Plan policies on Good Growth and London Plan Policies 2.13, 3.4 and 6.3, particularly the requirement for growth to be directed towards the most accessible and well-connected places, making the most efficient use of public transport, walking and cycling networks. A strategic transport intervention in the form of a new connection towards Canning Town would be required to achieve the necessary connectivity step change.

54 There are a number of potential options for this including a footbridge across the River Lea either from within the site or between the site and the bridge. The proposed ‘A13 Connector’, a pedestrian/cycle link which would route along the west bank of the Lea to the existing bridge over the river, which is south of the A13 is an alternative. GLA offices are working with TfL, Tower Hamlets and Newham Councils and the applicant on a Lower Lea Connectivity Study to review the requirements for improved local connectivity in the form of bridge infrastructure in this area. The study will identify a preferred option for improved connectivity to Canning Town, including design and cost. Until the outcome of the study is known, the cost of the new connection cannot be firmly established.

55 The current cost estimate for the A13 Connector is £13 million (including risk and contingency). It is considered that it is likely that an alternative bridge option would have a cost of a similar magnitude. In addition, all options would require public realm works either side to complete the whole route between the site and the station. Further discussion is needed between the GLA, Council, applicant and TfL as to what proportion of the £13 million is the reasonable level of contribution for this scheme to deliver. In addition, discussion is needed as to when the contribution should be triggered as it is expected that the first phase could be supported by buses, including necessary bus integration adjustments. Without a step change in connection to Canning Town, subsequent phases of the development would not be acceptable and therefore this contribution is essential site specific mitigation required to unlock this scheme. The development should also safeguard any necessary landing points for bridges and pedestrian routes within the site, including those that have been provisionally identified by the applicant. In addition, long term management and maintenance arrangements for the new connection must be agreed and secured.

page 10 56 To support the crucial connection with Canning Town, improved existing highway for cyclists and pedestrians is required to ensure that it can be relied upon for safe and convenient everyday access and contribute to the achievement of active mode share targets. These improvements must be secured as part of a wider package of connection works in accordance with London Plan Policies 6.3 and 6.11 and draft London Plan policies T2 and T3.

57 Cycle parking will be provided to meet draft London Plan standards across land uses. This is welcomed. The final level of cycle parking should be secured by condition and designed in accordance with the London Cycle Design Standards.

58 A total of 103 residential car parking spaces is proposed in phase one, this equates to a ratio of 0.18 spaces per residential unit. Car parking will be delivered across the masterplan at no more than 0.2 spaces per unit. In accordance with draft London Plan Policy and bearing in mind connection improvements, the proposal should be car free with the exception of parking for disabled persons and on this basis the car parking should be reduced.

59 Disabled persons parking for the other land uses should also be secured in accordance with draft London Plan policy, alongside electric vehicle charging points (EVCPs). A Car Parking Design and Management Plan is required.

60 The trip generation information submitted demonstrates that the proposal would have not a significant impact upon the strategic highway network. However, it is noted that the assessment forecasts that 40% of trips will be via Rail. If improved connections are not delivered as part of the scheme, this will not be achievable without significant use of buses as part of the journey.

61 Given the inaccessibility of the site, bus service enhancements including good connections to Canning Town and other stations and town centres along with enhanced capacity are necessary for the masterplan development. Such improvements will be particularly important for disabled people and others with mobility issues given the distance to travel and the longer step free routes.

62 The site must also be integrated into the bus network to support a high proportion of development trips being made by sustainable modes in line with draft London policy T1. The submitted transport assessment suggests the extension of route 488 from Bromley by Bow to Leven Road and possibly on to Canning Town or beyond. This route extension would be an effective bus integration solution, with the particular benefits of connections to two stations and a district centre. This bus integration will be particularly important for disabled people and others with mobility issues given the relatively long walking distances, particularly on step free routes, to local stations and town centres. To facilitate this a contribution of £2 million must be secured in the Section 106.

63 Conditions and section 106 obligations are required to secure the following; public transport, pedestrian and cycle improvements; vehicle access; car parking design and management plan; details of cycle parking; travel plan; electric vehicle charging points; delivery and servicing plan; and construction and logistics plan.

Local planning authority’s position

64 Tower Hamlets Council officers are currently assessing the application. The scheme is likely be taken to a Tower Hamlets committee early 2018.

page 11 Legal considerations

65 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 and any connected 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. Financial considerations

66 There are no financial considerations at this stage. Conclusion

67 London Plan policies on opportunity areas, housing, design, access, energy, flood risk and transport are relevant to this application. The application does not comply with the London Plan and draft London Plan for the reasons set out below, however, the possible remedies set out below could address these deficiencies:

• Principle of development: The residential-led redevelopment of a redundant gas facility in an existing and emerging Opportunity Area and Housing Zone is supported. The site suffers from constraints to connections across the River Lea. The proposal must facilitate the delivery of connections across the River Lea and connectivity improvements to justify the quantum of development proposed and ensure the Mayor’s good design and sustainable transport objectives are achieved.

• Affordable housing: 35% affordable housing by habitable room split 70:30 in favour of affordable rent across the masterplan which is welcomed. The applicant must explore grant funding to further increase the offer. An early review mechanism must be secured in compliance with the Mayor’s SPG.

• Residential quality: GLA officers will work with the Council and the applicant to ensure the scheme delivers the highest residential quality.

• Urban Design: The optimisation of housing delivery of this site could be supported subject to improved site connections. The general principles of the masterplan are supported. Parameter plans must be revised to include the safeguarded bridge landing points and these must be secured in the Section 106.

• Energy: The applicant must explore the potential for additional measures to deliver further carbon dioxide reductions. Once all opportunities for securing further feasible on-site savings have been exhausted, a carbon offset contribution should be secured to mitigate any residual shortfall.

• Water: A revised flood risk assessment must be submitted. The applicant must clarify discharge rates, provide a stronger commitment to SuDS measures and provide additional information on the consideration of the exceedance.

page 12 • Transport: The site is isolated in terms of sustainable transport, largely due to its surrounding connectivity barriers in the form of the River Lea, the A12 and the A13. Given the significant uplift in trips generated to and from by the development, cross river connections to Canning Town are crucial to facilitate active travel to and from the site. To deliver this new connection, GLA officers will work with TfL, the Council and the applicant to secure a financial contribution toward connection improvements.

for further information, contact GLA Planning Unit: Juliemma McLoughlin, Chief Planner 020 7983 4271 email: [email protected] John Finlayson, Head of Development Management 020 7084 2632 email: [email protected] Nick Ray, Team Leader – Development Management 020 7983 4178 email: [email protected] Kate Randell, Principal Strategic Planner, Case Officer 020 7983 4783 email [email protected]

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