planning report D&P/4127/01 31 October 2016 Railway Station in the Borough of Haringey planning application no. HGY/2016/2573

Strategic planning application stage I and II 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 Works to extend the operational railway station at White Hart Lane. Creation of a new station entrance, ticket hall, station facilities and station forecourt. Provision of a new pedestrian entrance from Penshurst Road. Improved access and lift access from street level to platforms, including the erection of new platform canopies. Demolition of the existing station entrance and 33 local authority owned garages. Enhanced public realm and cycle parking facilities. Improvements to the former station building. Plus associated works. The applicant The applicant is Rail for London Ltd, and the architect is Landolt & Brown.

Strategic issues summary Historic environment & urban design: The proposal is of a high design quality and provides a much improved configuration of the Station concourse, which allows much improved crowd control in response to the increased capacity of Hotspur Stadium development. The proposals enhance the setting of the historic environment (para’s 18-24). Transport: The proposal will improve the safety of passengers using the Station during events and is strongly supported (para’s 29-33).

The Council’s decision In this instance, Haringey Council has resolved to grant permission, subject to conditions and completion of legal agreements. Recommendation That Haringey Council be advised that the Mayor is content for it to determine the case itself, subject to any action that the Secretary of State may take, and does not therefore wish to direct refusal or direct that he is to be the local planning authority.

page 1 Context

1 On 14 October 2016, the Mayor of London received documents from Haringey 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 would have until 24 November 2016 to provide the Council with a statement setting out whether he considers that the application complies with the London Plan, and his reasons for taking that view. The Mayor may also provide other comments. However, in this instance, the Council determined the application on 10 October 2016, before the Mayor’s six week consultation period had expired therefore a stage one response was not issued.

2 The application is referable under Category 2C “Development to provide (d) a railway station or a tram station”.

3 On 10 October 2016, Haringey Council decided that it was minded to grant planning permission, subject to conditions and completion of legal agreements. Under the provisions of Article 5 of the Town & Country Planning (Mayor of London) Order 2008 the Mayor may allow the draft decision to proceed unchanged, direct the Council under Article 6 to refuse the application, or issue a direction to the Council under Article 7 that he is to act as the Local Planning Authority for the purposes of determining the application and any connected application.

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 is approximately 0.70 ha and comprises:  London Overground White Hart Lane Station’s ticket office and concourse at ground level;  Network Rail platforms (currently operated by London Overground Rail Operations Ltd) providing routes towards Cheshunt and Enfield Town to the north and Seven Sisters and the City to the south;  Vaulted brick arches beneath the railway embankment;  Former two storey station building;  A goods and storage used and owned by the lessees of the former station building;  33 local authority owned garages;  Areas of public realm on Love Lane and Penshurst Road.

7 The Station is located at the junction of the railway embankment running north to south, and White Hart Lane running east to west. Access to both platforms is provided by stairs located on either side of the railway embankment, accessed from White Hart Lane.

8 To the east of the site lie two 10 storey residential blocks, which form part of the Love Lane Estate. White Hart Lane itself is mixed in character, comprising two and three storey buildings with commercial uses at ground floor. Tottenham Hotspur Stadium development lies approximately 250 metres to the east of the site, which includes the construction of a new 61,000 capacity stadium, due to be completed by August 2018. The northern part of the site is located within the North Tottenham Conservation Area.

9 White Hart Lane lies to the immediate north of the site and is a major local thoroughfare and key route for buses between Tottenham and . It links the A10 High Road in the east and the A105 Green Lanes Road in the west, connecting Wood Green Station. Both the A10 and the A105 connect to the A406 North Circular Road in the north. The site’s public transport accessibility level (PTAL) of 4 (on a scale of 1a to 6b) demonstrates its

page 2 good accessibility to the public transport network. To the east of the site, between the Station and High Road, the PTAL rises to 5 due to the proximity of bus routes. Bus routes serve Edmonton and Waltham Cross in the north, Dalston in the south, and Holloway and Central London in the south west.

Details of the proposal

10 Full planning permission is sought for a new ticket hall on Love Lane; new London Overground ticket gate lines and Station facilities; two new lifts to provide step free access to each platform; new platform canopies; a new Station entrance on Penshurst Road, also providing direct access between Love Lane and Penshurst Road via an unpaid link; and public realm enhancements. The proposal will create 20 cycle spaces on the station forecourt to the south of the station entrance.

11 Redevelopment of the Station is driven by the scale of development coming forward in the area, in particular the redevelopment of Tottenham Hotspur Stadium with a much increased capacity, as part of the wider development of the Northumberland Park area. Improvements to transport links as one of its key strategies to achieve the vision for Tottenham’s future. Within this context, the Station is an important transport hub and the existing Station cannot fully support the regeneration objectives for the area.

Strategic planning issues and relevant policies and guidance

12 The relevant issues and corresponding policies are as follows:

 Regeneration London Plan; Mayor’s Economic Development Strategy  Historic environment London Plan  Urban design London Plan  Inclusive design London Plan; Accessible London: achieving an inclusive environment SPG  Transport London Plan; the Mayor’s Transport Strategy  Crossrail London Plan; Crossrail SPG

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 made up of Haringey’s Strategic Policies DPD (2013), the Saved Policies within the Unitary Development Plan, and the London Plan (Consolidated with Alterations since 2011).

14 The following are also relevant material considerations:  The National Planning Policy Framework, Technical Guide to the National Planning Policy Framework and National Planning Practice Guidance.  The Upper Lee Valley Opportunity Area Planning Framework (ULV OAPF) (July 2013).  The Tottenham Area Action Plan (Pre-Submission Version, January 2016).  The Site Allocations DPD (Pre-Submission Version, January 2016).  The Development Management DPD (Pre-Submission Version, January 2016).  Alterations to Strategic Policies (Pre-Submission Version, January 2016).  Tottenham Strategic Regeneration Framework (2014).  High Road West Masterplan (2014).  Northumberland Park Regeneration Area Masterplan (2013).

page 3 Principle of development

15 The site falls within the Upper Lee Valley Opportunity Area (London Plan Policy 2.13 and Map 2.4), identified as one of London’s major growth areas where 15,000 new jobs and 20,100 new home are projected to 2031. The site is also within an Area of Regeneration as identified in the London Plan (Policy 2.14, Map 2.5). The site falls within the High Road West Masterplan area, which promotes the delivery of a new station for White Hart Lane; the Tottenham Strategic Regeneration Framework (2014), which identifies improvements to transport links as one of its key strategies to achieve the vision for Tottenham’s future; and the Northumberland Park Strategic Framework Masterplan (2013), which identifies the need for significant investment and improvements at White Hart Lane Station. Several land parcels around the Station have been identified in the Tottenham Area Action Plan as major opportunities for growth, including the High Road West area (NT5) and North Northumberland Park (NT3). The redevelopment of Tottenham Hotspur Stadium is central to development in the wider Northumberland Park area.

16 Within this context, the Station is an important transport hub and with the anticipated scale of growth outlined above and already coming forward in the area, increasing demands are being placed on the Station to perform as a first class interchange. The existing Station cannot fully support the regeneration objectives for the area.

17 The proposals are strongly supported in strategic terms, and are consistent with the aims of London Plan Policies 6.1, 6.2 and 6.4, seeking to enhance strategic interchanges and London’s transport connectivity and improve public transport capacity. The proposals will result in significant improvements to the Station capacity, which is critical to accommodating the significant growth planned for the area. Historic environment

18 The Planning (Listed Buildings and Conservation Areas) Act 1990 sets out the statutory duties for dealing with heritage assets in planning decisions. In relation to listed buildings, all planning decisions should “have special regard to the desirability of preserving the building or its setting or any features of special architectural or historic interest which it possesses” and in relation to conservation areas, special attention must be paid to “the desirability of preserving or enhancing the character or appearance of that area”. London Plan Policy 7.8 ‘Heritage Assets and Archaeology’, which also applies to non-designated heritage assets, states that development proposals should identify, value, conserve, restore, re-use and incorporate heritage assets.

19 The northern part of the site is within the North Tottenham Conservation Area and 32, 34 and 34A White Hart Lane to the north-east of the site are Grade II listed, whilst no. 52 White Hart Lane (the former Station Master’s House) to the north of the site is a locally listed building of merit. Although unlisted, the former station building is also of some historic and architectural quality.

20 The former station building, which is currently in a poor condition, will be refurbished externally and its setting enhanced by the removal of the adjacent poor quality Station entrance. As such the proposal would enhance the building and its contribution to the Conservation Area. The new entrance hall on the eastern side of the Station is of a high quality modern design using materials that reference the local history of the area and complement the former station. The proposal would also remove the poor quality garages that currently detract from the setting of the Conservation Area and replace them with hard and soft landscaping, which would enhance the setting of the Conservation Area. In GLA officer’s opinion, no harm is caused by the proposal to heritage assets and the proposals are supported in line with Policy 7.8. The scheme is supported by the Borough’s conservation officer and Historic England has made no objection.

page 4 Urban design

21 Good design is central to all objectives of the London Plan and is promoted by the policies contained within chapter 7. London Plan Policy 7.1 sets out a series of overarching design principles for development in London, whilst Policy 7.5 requires a high quality of public realm. New development is also required to have regard to its context, and make a positive contribution to local character within its neighbourhood.

22 The existing poor quality Station entrance, which also suffers from accessibility and capacity restrictions, will be demolished and a much improved Station hall constructed further south. Primary access will be from Love Lane, which re-orients the Station towards the major development sites near to Tottenham High Road. A new secondary access will be created on the west side from Penshurst Road. A public underpass will also be created where none currently exists. The new Station allows much improved management of large crowds attending Tottenham Hotspur Stadium on event days, which is strongly supported.

23 The height of the Station hall roofs (9-10 metres) on both east and west sides of the railway viaduct provide generous concourse spaces; efficiently extend to form canopies for the platforms themselves; and relate well to both the adjacent former station building and the general context. The repeating bays of the main elevation and its folded form enliven what could otherwise be a monolithic and uniform frontage. Full-width glazing has been incorporated at street level to optimise views of the existing vaulted brickwork and to give clear lines of sight to the gateline, stairs, lift and pedestrian subway from the main approaches. The materials and textures of the new concourse include terracotta pot screens and lapped glass, which relate well to the brick of the railway viaduct and former station buildings, as well as acting as a reminder of the former manufacturing traditions of the area. The terracotta pots have inset ‘lids’ to prevent thrown objects being trapped on the inside face of the pots and prevent pigeon roosting. The public realm proposed outside each entrance is of a good quality, with trees in raised planters and hard landscaping. Raised table pavements will be incorporated on Love Lane and Penshurst Road.

24 In summary, the proposals are of a high design quality and provide a much improved Station concourse, which allows much enhanced crowd control in response to the increased capacity of the THFC stadium development. The scheme of the scheme is supported. Inclusive design

25 The aim of London Plan Policy 7.2 ‘An Inclusive Environment’ is to ensure that proposals achieve the highest standards of accessibility and inclusion, not just the minimum.

26 The existing Station offers a poor pedestrian experience, and within the Station, access to the platforms is via flights of stairs. The current location of the stairs at the north end of the platforms also means that walking distances at platform level are long if customers wish to use the southern carriages of the train.

27 The proposals will provide a more legible, generous, less congested, and step-free route from street to platform level. Key benefits include Blue Badge parking opposite the main Station building; set down bays for other private vehicles; dropped kerbs with tactile paving to provide a step-free route across the raised table on Love Lane to the Station; very shallow gradients within the Station forecourt and along Love Lane; a shallow gradient (1:21) ramp as well as steps on the Penshurst Road entrance to provide full access where street level and the level of the underpass differ; two new 16 person lifts providing step-free access to both platforms; and a fully accessible ticket office.

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28 In summary, the proposal significantly improves the accessibility for all users of the Station, in accordance with London Plan Policy 7.2.

Transport

29 No car parking is proposed at the Station, except for 3 Blue Badge spaces located on Love Lane to the east, which is supported. Two new lifts and step-free access are proposed, which is consistent with the London Plan aim to make public transport more accessible to wheelchair users. A total of 20 cycle spaces are proposed, which is an increase of 10 spaces currently and is supported; however additional stands would be supported should there be demand.

30 The Station operates in two distinct periods in relation to Tottenham Hotspur Stadium; event and non-event times. In non-event periods the applicant has used the TfL Railplan Strategic Modelling tool, as well as growth estimates from the High Road West Masterplan, to forecast 3,000 passengers in the PM peak (16:00 – 19:00) in 2031, with the majority of passengers arriving on trains from Central London. The methodology is acceptable and the new entrance on Penshurst Road is supported, as it will allow easier movement for passengers to/from the busiest platform.

31 On event days, the Station is primarily used to access Tottenham Hotspur Stadium to the east, for which capacity will increase to 61,000 when complete in 2018. There could be up to 46 events per year, with some being held mid-week, resulting in 16,000 trips in the mid-week event day scenario. The proposal will provide a wider concourse in between platforms and additional stairs on the eastern platform towards the Stadium, open only during events. These improvements will improve the safety of passengers using the Station during events and are strongly supported.

32 Servicing will take place from a dedicated bay off Love Lane, which is supported. The applicant has agreed to submit a construction management plan by condition, which is welcomed. The Station will remain operational during construction, which is strongly supported.

33 Transport for London and the Council’s transport planner have raised no objections and the scheme is supported on transport grounds

Response to consultation

34 Historic England made no objection.

35 Haringey Council publicised the application by sending notifications to 986 neighbouring properties and 3 Residents Associations, as well as issuing site and notices. The Council received 1 letter of support and 3 objections (one re-submitting a 450 signature petition from 2014 relating to the High Road West Regeneration Masterplan), with grounds for objection including impact on properties to the west of the Station; lack of toilet facilities; local amenity impacts; and Station design.

36 One objection has been made direct to the Mayor, objecting to the closure of the existing staircases at the north end of the Station, and the closure of western entrance in the post-event scenario; and the resulting impact on local commuters, and businesses that rely on existing match- day trade. The safety and other benefits of the proposed Station, particularly in view of the much increased capacity of Tottenham Hotspur Stadium development, are considered to outweigh this.

page 6 37 Issues raised by objectors have been considered in this report and the Council’s Committee Report.

Article 7: Direction that the Mayor is to be the local planning authority

38 Under Article 7 of the Order, the Mayor could take over this application provided the policy tests set out in that Article are met. In this instance, the Council has resolved to grant permission with conditions and a planning obligation and there is no sound planning reason for the Mayor to take over this application. Legal considerations

39 Under the arrangements set out in Article 5 of the Town and Country Planning (Mayor of London) Order 2008, the Mayor has the power under Article 6 to direct the local planning authority to refuse permission for a planning application referred to him under Article 4 of the Order. He also has the power to issue a direction under Article 7 that he is to act as the local planning authority for the purpose of determining the application. The Mayor may also leave the decision to the local authority. In directing refusal, the Mayor must have regard to the matters set out in Article 6(2) of the Order, including the principal purposes of the Greater London Authority, the effect on health and sustainable development, national policies and international obligations, regional planning guidance, and the use of the River Thames. The Mayor may direct refusal if he considers that to grant permission would be contrary to good strategic planning in Greater London. If he decides to direct refusal, the Mayor must set out his reasons, and the local planning authority must issue these with the refusal notice. If the Mayor decides to direct that he is to be the local planning authority, he must have regard to the matters set out in Article 7(3) and set out his reasons in the direction. Financial considerations

40 Should the Mayor direct refusal, he would be the principal party at any subsequent appeal hearing or public inquiry. Government Planning Practice Guidance emphasises that parties usually pay their own expenses arising from an appeal. Following an inquiry caused by a direction to refuse, costs may be awarded against the Mayor if he has either directed refusal unreasonably; handled a referral from a planning authority unreasonably; or behaved unreasonably during the appeal. A major factor in deciding whether the Mayor has acted unreasonably will be the extent to which he has taken account of established planning policy. Should the Mayor take over the application, he would be responsible for holding a representation hearing and negotiating any planning obligation. He would also be responsible for determining any reserved matters applications (unless he directs the Council to do so) and determining any approval of details (unless the Council agrees to do so). Conclusion

41 Having regard to the details of the application, the matters set out in the committee Report, and the Council’s draft decision notice, the proposal, with the suggested conditions and legal obligations, is compliant with the London Plan and is strongly supported.

for further information, contact GLA Planning Unit (Development & Projects Team): Colin Wilson, Senior Manager – Development & Projects 020 7983 4783 email [email protected] Sarah Considine, Strategic Planning Manager – Development Decisions 020 7983 5751 email [email protected] Martin Jones, Senior Strategic Planner, Case Officer 020 7983 6567 email [email protected]

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