Item No. Classification Decision Level Date

6.1 OPEN PLANNING COMMITTEE 27.03.07

From Title of Report

DEVELOPMENT & BUILDING CONTROL DEVELOPMENT CONTROL MANAGER

Proposal (06-AP-1913) Address

Erection of a 12-level (76.33 Above Ordinance , Datum Level) 24385m² (gross external area) SUMNER STREET, , SE1 extension to Tate Modern to comprise Class D1 9TG (Non-residential Institution) use including display and exhibition spaces, performance spaces, education Ward Cathedrals and learning facilities, together with ancillary offices, catering, retail and other facilities, landscaping, external lighting, servicing, vehicle and cycle parking and associated works including works to the public highway and necessary demolition of outbuildings, annexes and structures.

PURPOSE

1 To consider the above application, which is for Planning Committee consideration due to the strategic nature of the proposals and the number of objections received.

RECOMMENDATION

2 Resolve to Grant Permission, subject to a S106 agreement and also subject to the London Mayor not directing refusal.

BACKGROUND

Site location and description 3 Tate Modern occupies the former Bankside on the of the Thames; facing St. Paul’s Cathedral and linked to it by the Millennium Bridge. On the south side of Tate Modern is Sumner Street, to the west is Hopton and Holland Street and to the east Park Street.

Details of proposal 4 Tate Modern 2 will form an extension to the Tate Modern Bankside building and will be constructed by the demolition of part of the west end of the Switch House (at the south west corner of the building) and adding a new building to this area which extends south to take in the site of the former oil storage tanks. The new building will provide 24,385 m2 (gross external area) of accommodation on 12 levels, to a height of 76.33m.

5 The indicative breakdown of the gross internal area is: Display 6,297 m2 - including a large exhibition space of 1,500m2 Circulation 3,832 m2 Learning spaces 1,711 m2 Back of House 4,859 m2 Office 2,294 m2 Tate Shop 688 m2 - 2 new shops Catering 1,768 m2 - 6 new facilities; cafes, bars and restaurants Plant 1,906 m2 TOTAL 23,355 m2 (23,385m2 gross external area)

6 The building will be linked to Tate Modern 1 at levels 1 and 2 and via a pedestrian bridge at level 5. The building will include three terraces, one on top of the building with a panoramic view over London, one at the roof top level of the existing structure looking down on Tate Square and another terrace overlooking the Turbine Hall.

7 The application includes the creation of a new south entrance and north – south pedestrian route through the Turbine Hall, which will remain open for at least 12 hours a day. There will also be improvements to the public realm, with a new public open space to the south, to be called ‘Tate Square’, which will act as a public forecourt and gathering space. Visitors, residents, city workers and students are likely to take advantage of the southern orientation for recreation, sitting and eating. Terraced seats will be integrated into the design.

8 The western open space will no longer function as a public forecourt for Tate Modern but will instead be a destination, a space for recreation and events at the head of the Turbine Hall ramp. There will also be loosely arranged densely planted gardens. It is intended to retain or relocate all existing trees and plant some 1,300 birch and poplar trees.

9 A revised landscaping and parking plan was submitted during consideration of the application.

Planning history

10 By 1990 it was clear that the Tate Collection was far too large for the original Tate Gallery on Millbank (now Tate Britain) so it was decided to create a new gallery in London to display the international modern component of the collection. Bankside power station was available, as it had closed in 1982, and was a very striking and distinguished building and offered all the space that they thought they would need. From 1996 to 2000 the power station building was converted to Tate Modern by Hertzog & de Meuron architects. Tate Modern opened to the public on 12th May 2000.

11 The former Bankside Power Station was built in two phases, in 1947 and 1963, by Sir . The power station was designed as a monumental symmetrical composition and, although it is not listed, it is a distinguished architectural composition. Scott’s symmetrical elevations are characterised by integrity and power, with particularly fine brickwork.

12 It continues to be a distinguished and impressive piece of architecture, even with the recent alteration at rooftop level (called the ‘light beam’) for Tate Modern by Herzog & de Meuron, and the ‘Swiss light’ (on top of the Chimney tower), as these are considered to have respected the original architectural design.

13 Tate Modern has been a huge success since it opened, with over 25 million visitors since it opened. On average there are 4 million visitors a year, which is more than twice the number the building was designed for. This has resulted in overcrowded galleries and catering, and visitor services oversubscribed. There is an urgent need to improve and extend facilities.

Planning history of adjoining sites

14 The office development known as ‘Bankside 1-2-3’, (formerly the St. Christopher’s House office development) is nearing completion at the western end of Sumner Street. A mixed use development with a total gross floor area of approximately 117,280 m2. Comprising 3 separate buildings of 60.5m, 48.6m and 48.6m in height, located to the south and south east of Tate Modern (and to the west and south of Bankside House). This development will accommodate 108,023m2 gross of offices (B1), 7,438m2 gross of retail (A1), 1,819m2 gross of leisure floorspace (D1), and associated servicing and car parking.

15 The development includes the provision of two new public areas of open space at street level, one at each end of development and the creation of two new north-south streets /spaces between buildings 1 and 2, and between 2 and 3, providing new routes to Tate Modern.

16 About 50m to the west of the Tate Modern, permission was granted on appeal for a 20 storey stepped residential tower of 48m rising to 63m in height (known as the Hopton Street Tower). The building would comprise 19 private and 9 affordable flats up to 26 with basement car parking. Retail (A1) and/or restaurant (A3) uses are included in the basement, ground, first and second floors.

17 The site is now owned by GC Bankside LLP (land owners of the Holland Street buildings/ Bankside 4). As part of their Bankside 4 development they propose to replace the permitted 20 storey Hopton Street Tower with an open space which would include a small structure for community, cultural and/or recreational purposes and/or any other purpose to facilitate and define the use of the open space.

18 On the west side of Sumner Street, between the junctions of Street and Hopton Street, a new development known as ‘Bankside 4’ is proposed. A resolution to grant subject to S106 was made on the 14/11/2006. It will involve the construction of 5 buildings: one 6 storey; two 12 storey (42.86m); one 18 storey (61.55m) and one 24 storey (80.45m), with a double basement extending across much of the site. The development comprises 229 residential flats on the upper floors, with retail, amenity and leisure uses at ground floor level. Also offers public realm improvements and claimed to be consistent with landscaping proposals for TM2. This scheme involves the abandonment of the Hopton St Tower scheme, to be secured through a S106 undertaking.

19 To the south east of Tate Modern on a site bounded by Park Street, Emerson Street and Sumner Street (called 185 Park Street) is a development proposal for 134 flats and 19,192 m2 of offices. This was refused and was recently been the subject of a public Inquiry. The appeal scheme would have a 24 storey (89m high) residential tower on the west corner facing Tate Modern, an 8 storey office building and a 5 storey residential building in Sumner Street. The decision on this appeal is expected in late April.

20 A little further afield there are large mixed-use development proposals in Blackfriars Road, including a 15 storey office building and 5 storey residential building at 231-241 Blackfriars Road (included elsewhere on this agenda), and the 180m high Beetham Tower proposal for a hotel and 96 flats at 1-10 Blackfriars Road (06-AP-2117), and two towers of 148m and 105m at 20 Blackfriars Road (07-AP-0301).

FACTORS FOR CONSIDERATION

Main Issues

21 The main issues in this case are: a] the principle of the development in terms of land use and conformity with strategic policies; and b] whether the design, appearance, scale and massing of the proposed new building are acceptable in this locality.

Planning Policy

22 At its meeting on 24th January 2007 the Council decided to adopt the Southwark Plan [2007] subject to referral to the Secretary of State. The policies in the Southwark Unitary Development Plan 2007 now have significant weight in the determining of planning applications. Whilst the 1995 Unitary Development Plan remains the statutory development plan until such time as the Southwark Unitary Development Plan 2007 is formally adopted, the Council will give predominant weight to the 2007 plan policies in determining pending applications unless material considerations indicate otherwise.

Southwark Plan 2006 [Modifications Version] 23 Proposals Site SP2 – for cultural uses of national and international significance. Within the Thames Policy Area Within the Central Activities Zone Within the Bankside and The Borough Action Area SP7 – Arts, Culture and Tourism Designated as a Strategic Cultural Area Policy 1.1 – Access to Employment Opportunities Policy 1.11 – Arts, Culture and Tourism uses Policy 2.5 – Planning Obligations Policy 3.1 – Environmental Effects Policy 3.2 – Protection of Amenity Policy 3.3 – Sustainability Assessment Policy 3.4 – Energy Efficiency Policy 3.5 – Renewable Energy Policy 3.7 – Water Reduction Policy 3.8 – Waste Management Policy 3.9 - Water Policy 3.11 – Efficient use of land Policy 3.12 – Quality in Design Policy 3.13 – Urban Design Policy 3.14 - Designing out crime Policy 3.18 – Setting of Listed Buildings, Conservation Areas and World Heritage Sites. Policy 3.19 – Archaeology Policy 3.20 – Tall Buildings Policy 3.21 – Strategic Views Policy 3.22 – Important Local Views Policy 3.29 – Development within the Thames policy area Policy 5.1 – Locating Developments Policy 5.2 – Transport impacts Policy 5.3 – Walking and Cycling Policy 5.6 – Car Parking Policy 5.7 – Parking standards for disabled people and the mobility impaired Policy 5.8 – Other parking Policy 7.4 – Bankside and The Borough Action Area

London Plan 2004 24 Policy 2A.1 – Sustainability Criteria Policy 3B.10 – Tourism Industry Policy 3C.22 – Parking Strategy Policy 3D.4 – Development and promotion of arts and culture Policy 4A.7 – Energy efficiency and renewable energy Policy 4A.8 – Energy Assessment Policy 4A.9 – Providing for renewable energy Policy 4A.10 – Supporting the provision of renewable energy Policy 4B.1 – Design principles for a compact city Policy 4B.2 – Promoting world-class architecture and design Policy 4B.3 – Maximising the potential of sites Policy 4B.4 – Enhancing the quality of the public realm Policy 4B.6 – Sustainable design and construction Policy 4B.7 – Respect local context and communities Policy 4B.8 – Tall Buildings – location Policy 4B.9 – Large scale buildings – design and impact Policy 4B.15 – London View Protection Framework Policy 4B.17 – Assessing development impact on designated views. London View Management Framework (Draft SPG)

Planning Policy Guidance [PPG] and Planning Policy Statements [PPS] 25 PPS1 – Delivering Sustainable Development PPS6 – Planning for Town Centres. PPS9 – Biodiversity and geological conservation. PPG13 – Transport PPG15 – Planning and the Historic Environment PPG16 - Archaeology and Planning PPG14 – Planning and Noise PPS25 – Development and Flood Risk. RPG3a – Supplementary Guidance for London on the protection of Strategic Views.

Consultations

26 Site Notices: 17th October 2006 (North & West entrances and to South)

Press Notice: 19th October 2006 Consultations posted: 19th October 2006

27 Internal Consultees Conservation & Design Team, Access Officer; Transport Group; Public Protection, Archaeology, and Policy.

28 Statutory and non-statutory consultees GLA; GOL; TfL; English Heritage; CABE; City of London; City of Westminster; London Borough of Lambeth; Southwark Police; Fire Service (Southwark); Ambulance Service; The Twentieth Century Society; Tourist Board; Environment Agency;

29 Neighbour consultees 516 letters to individual occupiers, including flats in: 44 to 58, 60-62, 67, 71 Hopton Street; Bankside Lofts, 65 Hopton Street; Gallery Lofts, 69 Hopton Street; 62-76 Park Street; 185 Park Street; 1-99 Sumner Buildings, Sumner Street; 82 to 96 and 116 to 144 (evens) Southwark Street; 47 to 53 (all) Bankside; 1 Zoar Street; 1-110 Falcon Point, Hopton Street; 1-21 Hopton Gardens, Hopton Street; St. Christopher’s House Annex, Hopton Street; Bankside Industrial Centre, 5-11, 24, 25 Sumner Street; National Grid House, Sumner Street; Shakespeare Globe Theatre, New Globe Walk; 15 New Globe Walk; Falcon Point Tenants & Residents Association; Bankside Residents Forum;

Additional Consultations by applicant: 30 2 Newsletters with project information have been sent to around 5,000 local residents and businesses, an exhibition held at Tate Modern since before application submitted; Exhibition material is on Tate web site; meetings with key stakeholders including Council; media coverage. Letters to organisations above.

Consultation replies

Internal Consultees

31 Conservation and Design Team – The design of Tate Modern 2 (TM2) has developed considerably over time. The materiality of the building has gone from brick cladding to glass, but also the height and form has changed as the detail of the design has progressed. TM2 shows considerable promise. It is confined to the South West corner of the existing building as this area best utilises space that has come available and does much to reconcile the understanding of the building’s internal circulation.

32 The iconic form of Tate Modern demands a carefully considered response. TM2 has been designed by, Herzog de Meuron Architects, who were responsible for the conversion of the power station for Tate Modern. The architects have designed a building that will is likely to have an iconic standing in its own right. It will be a 12 storey structure and have a sculptural character which comprises a truncated pyramid shape. It would stand well below the chimney of the main building. The proposed extension will be composed of a series of different size ‘boxes’ that project from the pyramid shape. The entire structure will be wrapped in textured glass.

33 Architecturally the proposed building is considered to form an acceptable addition to Gilbert Scott’s former Power Station, and add considerable value to this important cultural quarter of Bankside and London. The quality and responsive nature of the glass which includes its reflectivity will be of paramount importance. The Architects are continuing with their investigation into this. A sample panel of materials should be provided on site which can be dealt with by condition.

34 The Design Statement identifies several key views to assist in assessing the impact this development will have on the local and wider townscape. The principle impact will be from the north of the river looking south. This includes views from the Millennium Bridge, and . In assessing the impact, one should bear in mind that views are a changing experience because rarely do people stay stationery. The height, scale and mass of the proposed Tate extension will be clearly visible and in certain situations it will be seen to dominate the existing building.

35 It is considered that the visual strength of Tate’s rectangular form can sustain an equally strong addition. The chimney will still be seen against the sky and given the backdrop consultation zone for the strategic view from Alexandra Palace to St. Paul’s runs roughly from the Tate’s chimney eastwards, this should remain the case. There is some regret that the symmetry of the building will be lost when viewed from the north side of the river, but given Scott’s Power Station does not enjoy any statutory protection; a refusal would be difficult to defend.

36 The proposal will have an impact on local views. The chimney will no longer be seen from the junction of Southwark Street with Great Suffolk Street. As one approaches the Tate along Sumner Street this will remain the case. It is considered however, that the Tate extension would be an iconic building in its own right and in these local views act as a positive means of wayfinding.

37 There will be no impact on nearby Listed Buildings. The listed Almshouses could be most affected by this proposal. As the recently approved Bankside 4 development is taller and closer to the Almshouses, the Tate extension is not considered to cause demonstrable harm to their setting.

38 Transportation comments – Supports comments by TfL. Concerns about location of taxi rank into a point of conflict between pedestrians and vehicles. Concerned about parking. Will be car free except for disabled parking and service parking already existing for Tate Modern 1. Cycle storage will be secure (details reserved by condition). Concern about the cumulative effect of development in this area on traffic level. However, analysis shows this will have negligible impact on the area.

39 Statutory and non-statutory consultees Authority – (Director of Policy and Partnerships) An extension to the Tate Modern will form an important contribution to London’s role as a World City. The extension would provide an important increase in gallery floorspace and would enable the Tate to provide a more diverse cultural offer. However, a clear choice of materials was absent. Given the highly specific massing and form, the choice of type of glass and its detailing will determine the eventual visual appearance of the building. The recognisable silhouette and general image of the current Tate Modern would be significantly interrupted by the proposal and therefore the quality of the design will be critical to its success. The application material is not convincing that the proposed combination of architecture and materials will deliver a world-class building. More information is required to demonstrate the quality of the proposal in terms of Policies 4B.1 and 4B.9 of the London Plan. More information is also needed to show that the proposal is exemplary in terms of sustainable development and accessibility, and that it would deliver a high quality urban realm all round the building. In particular, there is concern about the impact of the proposed service yard on the quality of the open space at the western entrance.

40 Transport for London (TfL) – Supports the development in principle. The transport assessment is of a high standard but has not adequately addressed the issue of taxi rank capacity. With the increase in visitors there would be greater use of taxis. Proposal reduces taxi rank from 5 spaces to 4. There are 20 parking spaces proposed, 9 of which are a re-provision of existing visitor disabled parking plus an additional space. 8 spaces will be for Tate employees. In this location TfL queries why there is a need for employee parking. TfL queries how the provision of 156 bicycle parking spaces was arrived at. Requires clarification of the expected number of visitors who will arrive by coach. Welcome the inclusion of a travel plan and commitment to providing a travel plan co-ordinator. A Construction Management Plan will be needed.

41 CABE (Comments made at the pre-application stage) - Applaud the ambition behind the project - clearly a demanding proposition, but they have absolute confidence in the commitment of the client and the quality of the design team. Support north-south route, siting massing and overall form. Consider relationship between tate 1 and Tate 2 successful - mboth are strong, distinct characters. Glazed cladding will need extensive research - biggest challenge is to know what the building will look like, and wish to remain involved as the design develops.

42 Neighbour consultees Supporters: (including those with some concerns) - 39 Falcon Point – Strongly support providing that the open space at the western end is retained for visitors. - 46 Falcon Point – Support but with no vehicles to use Hopton Street and Holland Street; No building work to start until 47 Hopton Street is completely finished. It is too high, it should be 10 storeys. - 69 Flacon Point – No objection, will enhance local environment. - 509/510 Bankside Lofts – Support. - 512 Bankside Lofts – Support but does it really have to be so big? Concerned about additional traffic, deliveries, increasing noise and that bulk of proposal and its effect on density of building in this area. It will be a lump of a building. Concerned about light from windows and other lighting. - Flat 511, 65 Hopton Street – Support as it will add to the enormous contribution that Tate has made to London’s cultural life, tourism and economy. However, concerned that height will affect riverscape when viewed from north bank and Millennium Bridge, by disturbing the clean, classic outline of Giles Gilbert Scott’s original building. - Flat 572 Bankside Lofts – Support but concerned about additional traffic , deliveries, etc., increasing noise and pollution. Concerned about bulk and its effect on other developments locally. Also concerned about light, reflections and effects on flats, and lights being environmentally unacceptable. - 144 Southwark Street – support. - Chair of Tate Modern’s Community Liaison Group – will offer benefits to local communities, increased capacity for Tate’s excellent educational opportunities, more job opportunities for local people, pedestrian access through the building into the evening, and enhanced design of urban landscape.

43 Objectors: - 413 Bankside Lofts – Concerned about out of hours access required for service vehicles which will cause noise. Should be restricted to the east. Traffic needs to be restricted. - 96 Sumner Buildings – The extension will be too large and too tall. There is not enough green space, the Tate is very large as it is. The area is like a building site. The extension will cause noise pollution, increased congestion, and disruption. Existing features and views will be disrupted once it is built as it is so large. The narrow roads will not be able to cope with even more congestion. Sustainability should be built in to the design, e.g. green power generation, local materials, etc. The extension looks very ugly and out of keeping with Tate Building and will stick out like a sore thumb. - 86 and 96 Falcon Point – both state that it is too large and too greedy. Not against an extension in principle, just this plan. The glass structure will glow all night. A smaller, less light and energy pollutant building would be far more environmentally and community friendly. Why does it need six more restaurants? There is an intention to increase opening hours with a detrimental impact on local residents. The number of visitors now have a detrimental effect on residents, extra visitors will give residents little peace. The power station was the industrial equivalent of St. Paul’s. The Millennium Bridge was to link these two ‘Cathedrals’. The height, bulk and mass of the proposed design detracts from the original building. Tate told residents that the open space at the rear would be a grassy area for residents to sit and quietly relax. They now wish to renege on their promise and build on it. - Bankside Residents Forum – understand the need to expand but the scale of TM2 is far greater than originally planned and seems to overwhelm the power station which is a landmark building in its own right. TM2 will take away the grass area used by children and adults, some part of the square or landscaping needs to provide for people to sit on and read a book or play football and provide a place for people to play. If the space below ground can be used why is it necessary to be so high? Do not agree that the southern entrance will provide a connection between the city and Elephant and Castle. The alleyway between Bankside 1 and 2, to Southwark Street, does not provide a link to Elephant and Castle which is still too far away, and no reason to go there. TM2 will be 2/3rds the height of the Chimney, undermining its landmark value.

44 The Twentieth Century Society – objects as the Tate would be a very dominant and overpowering structure that would have a distinctly negative impact on the former power station building. The proposed extension is felt to be lopsided and inappropriate for its sensitive context, especially when seen from the important view point of St. Paul’s and the Millennium Bridge (most important as it is more heavily frequented). Whilst the Tate building makes a very strong and clear statement, the new high rise buildings in the vicinity of the Tate are incoherent and a ‘hotch potch’. It would be unfortunate to upset the clarity of this iconic image and the symmetry of the Tate building. They suggest that the expansion of the Tate could be included in TM3 instead of reserving it for another cultural body. The TM3 building could be built slightly higher, to accommodate both another cultural institution and some of the space would be lost by lowering the south west extension.

45 Professor Gavin Stamp, a leading architectural historian – objects due to the demolition of more of Sir Giles Gilbert Scott’s Bankside Power Station. More than half of the particularly fine brickwork of Scott’s south elevation will be demolished. Scott’s power station was designed as a monumental symmetrical composition. This extension will wreck this symmetry as well as remove more of Scott’s original fabric. The claim that this will provide a direct route from the south to the turbine hall is nonsense as there is already a central entrance in the south elevation designed by Scott. The new entrance would be a gratuitous disfigurement of a distinguished architectural composition. The Tate has also suggested a further extension might consist of a free-standing to the south and east side of the open space in front of the former power station. This would be acceptable in principle and I cannot see why the current needs of the gallery cannot be met by a balancing block on the west side of the open space. Scott’s symmetrical south elevation would then retain its integrity and power. This would avoid any further demolition of the fabric of the original Bankside Power Station.

46 Indeed there seems no reason why the existing south west corner of Scott’s building cannot be adapted for the Tate’s use. Scott’s building ought to be listed but was exempted for political reasons when the power station became redundant. It remains a distinguished and impressive piece of architecture despite Herzog & De Meuron’s earlier alterations, and its survival and impressive presence account for much of the success of Tate Modern. The current proposal is not only pretentious, excessively domineering and ill-thought out in itself, but will gravely damage Giles Scott’s building both physically and aesthetically.

47 Not objecting but comments: - Falcon Point Management Group Ltd. – concerned about height and impact on television reception, also the increase in traffic using Hopton Street. Concerned about lights at night, particularly light pollution. - Bankside Residents for Appropriate Development (BROAD) – Need to restrict delivery times to 08:00 to 18:00, and only from Holland St. Height and density of landscaping should screen delivery entrance to west. Regret the loss of grassed area, this should be relocated within the development. Internal lighting should be turned off when gallery is closed. Upper level external public areas should close when the gallery closes. Want to see conditions restricting demolition and construction hours, with weekends prohibited. Daylighting calculations should be calculated with and without the Holland St Tower and the Clan Grosvenor scheme. There should be no decision on TM2 until the position on Clan Grosvenor proposal is clear. - Crime Prevention Design Advisor (Police) – Only concern is the provision of secure bicycle parking, would prefer to see an attendant to supervise parking.

48 No observations: English Heritage – no comments, application to be determined in accordance with policy and conservation advice. City of Westminster - no comment. London Fire & Emergency Planning Authority (LFEPA) ‘no observations’ Environment Agency – No objection.

49 Tate Modern held an exhibition from July to November 2006. An opinion survey on about 500 people – 57% scored the scheme 8-10 (10 being highest) and 76% thought it would make an exciting addition to London. 76% thought that the galleries were sometimes overcrowded, 11% thought it was always overcrowded. 75% were in favour of the public route. 81% thought existing open spaces were poor or ok, and 64% thought the new spaces would be an improvement.

PLANNING CONSIDERATIONS

Principle of development 50 The site of Tate Modern is designated as Proposal Site 2P in the Southwark Plan. The appropriate uses are described as cultural uses of national and international significance. Other acceptable uses being employment (B1) and residential (C3) uses that are subordinate to the main arts or cultural use, including up to 30% residential use and retail on the ground floor. This proposal complies with this designation.

51 Tate Modern is within the Bankside and The Borough Action Area which is described in the Southwark Plan as a unique location combining historic character with the best of new developments. It should be a mixed use district full of vitality with a range of housing and employment opportunities, cultural and visitor attractions, increased densities, high quality services and improved infrastructure. This proposal also complies with this designation.

52 Bankside has also been designated as a Strategic Cultural Area to protect and enhance the provision of arts, culture and tourism. Policy 1.11 of the Southwark Plan says planning permission will be granted for new arts and cultural and tourism uses if certain criteria are met, such as not unacceptably compromising the character of the area.

53 National policy on delivering sustainable development (PPS1) encourages the focus of the development that attracts large numbers of people to existing centres and provide more efficient use of land through higher density development.

54 The proposed development, for increased capacity for art and culture, fully complies with the policy designations for this site and would contribute greatly to the continued regeneration of this area and establishment of this locality as London’s new cultural quarter. The principle of the development is therefore completely acceptable.

The need for the development 55 Tate Modern has been a huge success since it opened, with over 25m visitors since it opened. There were 5.25m visitors in the first year but has now settled down to an average of over 4 million visitors a year, which is over twice the 1.8m building was designed for. This has resulted in overcrowded galleries and catering, and visitor services oversubscribed. There is an urgent need to improve and extend facilities. The demand for Tate’s education and community programmes cannot be satisfied at present. Opportunities for learning will be a priority for the Tate in the next stage of development.

56 Tate also needs to expand to allow it respond to new and changing demands for visual culture and arts and the range of experiences and services that should be expected in a world leading museum of modern art. Tate’s collection is growing and into art forms new to the Tate, including photography, film, video and performance. More display space is needed for these types of art as well as making space for parts of the existing collection to be brought out of storage. Larger galleries are required for large-scale works and a range of small galleries for art that suit a more intimate environment.

57 The additional 24,385m2 of space would bring an opportunity to create new and varied spaces that will show Tate’s growing international collection, expand its programme and give education top priority. It is anticipated that visitor numbers will initially rise once TM2 opens but should settle down at about 5 million a year, in line with the National Gallery and British Museum.

Environmental impact assessment 58 A detailed study of potential glare, reflected light and light spillage has been undertaken and included in the Environmental Impact Assessment (EIA). The impacts would be negligible but would guide the location of windows in the development. There were also studies that demonstrate that the impact of Tate Modern 2 on daylight, sunlight, overshadowing, light pollution and solar glare are all negligible. The cumulative impact for surrounding residential is considered to be of negligible to minor adverse significance.

59 A wind tunnel test was carried out on a scale model and a comfort scale established around the building at different times of the year and this showed that the effects would be negligible to having a minor adverse significance.

60 The potential impact on television, radio and other telecommunications has also been assessed. New buildings or structures can television signals or cause ghosting by the reflection of signals off building facades. Bankside 1 has already blocked TV and the main FM radio signals from the Crystal Palace and Croydon transmitters. The additional signal shadow caused by Tate Modern2 would fall well to the north in the commercial area of Farringdon where few (less than 10), if any, dwellings may be affected. The impact would therefore be negligible. Nevertheless a post construction survey will need to be carried out to establish whether there was any impact and what mitigating measures may be needed.

Impact of proposed development on amenity of adjoining occupiers and surrounding area 61 In addition to assessing the potential impact on daylighting, light spillage, glare, wind and television and radio reception for local residents. Measures will be introduced to minimise the impact of the development for local residents. To minimise the potential for noise nuisance, delivery drivers using the west goods handling yard will be required to switch off their reversing alarms during the evening and at night (19:00 to 07:00). In addition items of fixed plant will be selected so that noise levels for the nearest noise sensitive receiver will be 5dB below background noise levels.

62 To minimise light pollution, most of the internal lighting will be switched off when the development is not in use. However, in areas of high pedestrian numbers, extra external lights will be used at night together with CCTV to provide additional safety.

63 The main impact for the locality could be the increase in visitor numbers. The projected number of visitors is estimated at 5 million a year for Tate Modern 1 and 2, and 5.6 million for Tate Modern 1, 2 and 3. In addition, it is estimated that there could be an further1 million visitors just to the landscaped areas around the Tate Modern buildings, as a result of the improved public spaces and the new north-south route. This assessment is based on Saturday peak numbers and does not include the use by the area’s increasing office and residential population during the week, which is not expected to be as great as the peak weekend visitor numbers.

64 Most of the increased pedestrian flow is expected to be where the greatest pedestrian movements are now, notably the Millennium Bridge (highest average flows are 2,778 people per hour), the River Walk west of Southwark Bridge (2,728 persons per hour), and around the north and west entrances to Tate Modern. Other busy routes are Blackfriars Road, Southwark Bridge Road and Holland Street.

65 As a result of Tate Modern 2 higher levels of pedestrian movement are expected to have a moderate beneficial impact on pedestrian safety in the currently very quiet area to the south of Tate Modern. Although the increased activity may be significant, its level is expected to have a negligible impact on the level of service, and therefore the comfort levels of the pedestrian routes in the area.

Traffic issues 66 The pattern of travel to Tate Modern are well established, with 75% of visitors using public transport and a further 14% walking from home, work or from another attraction. The location has a PTAL rating of 6a, which is excellent public transport accessibility, with six underground tube stations nearby, six bus services, a taxi rank and river service to Tate Britain.

67 There is expected to be a 50% increase in servicing movements (for Tate Modern 1 and 2). In response to responses received, Tate Modern 2 will provide a second goods handling zone to the west, as the creation of a north-south pedestrian route through Tate Modern results in restricted use of the existing south goods handling zone. The east goods handling zone will be improved and a Servicing Vehicle Management Strategy will be able to handle 62% weekly movements (thereby minimizing the amount of servicing traffic along Hopton Street).

68 The west goods handling zone will handle about 33% of the weekly vehicle movements, keeping disturbance to residential neighbours to a minimum . The south goods handling zone will take just 2.5% of weekly movements.

69 The impacts of increased numbers of vehicle movements has been assessed as having negligible impact of other road users but a minor negative impact on pedestrian and cyclist amenity. The impact of the extra pedestrian visitors on underground services was assessed as negligible and on local bus services as between negligible and a minor impact.

70 A revised plan has been submitted for the public realm, which also makes changes to parking arrangements to comply with Council officer and TfL requests. These include an increase in parking bays for the disabled, from 9 to 12, with the extra spaces added close to the south entrance. The adjoining shed for 40 visitors bicycles would also be realigned. There will be another secure parking area for 36 bicycles near the western ramp, staff bicycle parking inside Tate Modern 2 and a covered parking area for 50 bicycles and 9 motorcycles for staff adjacent to the eastern staff entrance.

71 Operational parking has now been reduced to the existing 5 parking spaces, one of which is for the Tate mini-bus, and one parking bay for disabled staff. This space is a minimum provision and suggests a planned provision for a very low proportion of disabled staff at Tate Modern, unless public spaces are also intended to be used by disabled staff.

72 Servicing to Tate Modern 1 will continue from the eastern courtyard and servicing to Tate Modern 2 will be from a new western courtyard , occupying the area currently used for parking for disabled visitors and for cyclists.

73 The Taxi waiting and drop-off area (for 6 taxis) will be relocated in Holland Street to a point close to the corner of Sumner Street, which will be closer to the Southern entrance which is intended to take over from the west entrance as a primary way into and through Tate Modern.

Design issues

74 The proposed new building would be a unique shaped structure in dramatic contrast to the orthogonal arrangement and monolithic shell of the neo-classical power station. it will consist of multifarious blocks protruding out of an essentially pyramidal structure. The rooms are stacked on top of each other, resulting in a complex spatial organisation that keeps everything together inside while appearing from the outside to be almost chaotic and more of a puzzle than a conventional art gallery building.

75 The proposed building will be a unique and memorable structure which will capture the imagination and will, no doubt, challenge people’s perceptions of buildings. In many respects it will itself be a striking example of modern art, and attract similar controversy and differing views about its merits. In that respect it would seem to be a highly appropriate design for Tate Modern 2.

76 The contrast between the symmetry and fine monumental brickwork of Sir Giles Gilbert Scott’s power station and the textured glass covered sculpture of Hertzog & de Mueron’s eye catching extension could hardly be greater. However, the most important view of the power station building is from the north, particularly the north bank of the Thames and from the Thames bridges. This is how Sir Giles Gilbert Scott expected it to be viewed and the visual power of the building is maintained. The Tate Modern 2 building will be viewed looming over one shoulder but could not possibly be confused with the original building. It will be a landmark in its own right but not distracting from the status of the main Tate Modern building.

77 The unique shape will create a silhouette on London’s skyline which will stand out in front of the surrounding commercial and structure will clearly mark Tate Modern as the main cultural destination. Just as the Pompidou Centre building in Paris has become a destination in its own right (with 7m visitors a year, of which only about half enter the building), it is likely that Tate Modern 2 will achieve similar acclaim.

78 Other than the unique shape, the main feature of the building will be the textured glass façade. This will consist of two layers; an outer textured glass rain screen with an inner layer of solid panels behind. For window and vision areas the façade becomes a single layer, double glazed unit. In these cases the textured glass surface will be ‘polished’ from rough to smooth around the edges of the vision area. This polishing will blur the boundary between walls and windows.

79 The intention is that the building will reveal itself in varied ways in different times rather than presenting a static appearance. This will vary over time due to two factors. Firstly, the building form (seen as a stack of boxes, a pyramid, or both) which varies with the viewpoint and movement of the observer. Secondly, the appearance of the textured glass surface will vary (with transparency and reflectivity) with external environmental conditions, the internal operation of the building and the viewpoint and movement of the observer.

80 The building will not be a glass building (being 65% solid) but wrapped all over in a layer of textured glass. The continuous material which conceals the change from solid to window gives it a homogeneous and abstract appearance, consistent with the use and function of the building.

81 It is the Council’s policy (and the London Mayor) to require world class architecture. This proposal could well be that quality but it will depend on the details of the materials, especially the qualities of the textured glass, and the detailing of the design. The GLA's Stage 1 report raised concerns about the lack of clear information about the type of glass and its detailing. The applicants have respinded to the points made by attempting to define a number of key design parameters that describe the facades; these would act as a benchmark for final material selection. In these circumstances, it is considered acceptable to reserve the materials by condition, as well as setting down Facade Design Criteria within the S106 Agreement. Other matters that will need to be reserved for latter approval include additional information needed to ensure that the development will be exemplary in terms of sustainable development and accessibility; the Tate has include strategies for both of these issues within the proposed S106 Agreement.

Impact on Local Views 82 The proposed extension is well outside any backdrop consultation zone for strategic views (or any proposed background assessment area under the draft London Views Management Framework). However, Tate Modern does feature in some important local views. In particular, the views from Southwark Bridge (protected in the London Plan) and the views from the Millennium Bridge, which are considered important due to the very high numbers of people who walk across the bridge.

83 In some respects the Bankside 1, 2 3 development already compromises the views of Tate Modern from Southwark Bridge and the Millennium Bridge. Fortunately the new developments to the south of Tate Modern are clearly perceived as being distant from Tate Modern and do not distract from the presence and monumental scale of the former power station, or from Tate Modern as a destination. The proposed extension will appear over the shoulder of the main Tate building but this will be an acceptable view because the extension will also be part of the Tate destination.

84 The extension is unlikely to detract from the existing building as it will clearly appear at the rear, as an extension, will be of entirely different dimensions and of quite different materials and appearance. The existing building with its tall chimney will still be a monumental symbol on the Thames that this is Tate Modern. It would now have an eye catching and dramatically different extension that could not be confused as being anything but more Tate Modern.

85 The most dramatic view point is likely to be for those approaching from Southwark Street. here the full effect of the multi-facetted building will be seen, where currently the view is of the rather more dull rear elevation to the former power station and the switch house.

Impact on character and setting of a listed building and/or conservation area 86 There would be no impact due to the approval of major buildings, such as Bankside 4, between the new building and the nearest listed buildings.

Planning obligations [S.106 undertaking or agreement] 87 Planning obligations, including the use of standard charges where applicable, are used to mitigate the direct and cumulative impacts of developments. As Tate Modern is a publicly funded cultural facility which generally has very positive impact on the economy of the area, there would be no requirement for the usual standard charges for education, health, etc., that may be required of, for example, a major commercial development. However, a planning obligation should address the specific impacts that would arise. In this respect the following heads of terms are proposed.

Facade design criteria Whilst materials are reserved by condition, the detailed design criteria is critical to the success, or otherwise, of this particular building design. The applicants have agreed that issues such as the rainscreen construction, the continuous glass surface over all visible facades, area of windows, and textured glass parameters (reflectance, transmittance, texture depth, etc.) should be part of the legal agreement.

Local highway and transport improvements The re-provision of a taxi pick-up/drop-off point, replacement of 6 on-street parking spaces, improvements to specific bus stops in Southwark Street and tourist way- finding signs will be provided. In addition, payment of the Council's cost of works within the public highway, including 10% of the design fees and other preparatory costs.

Servicing and Vehicle Management Strategy To control the timing of deliveries, management of routes to and from Tate Modern by delivery vehicles, waiting locations and use of delivery zones.

Public accessibility strategy Details of permeability through Tate Modern, publicly available disabled parking spaces, provision of mobility scooters, toilet facilities, evacuation plan and a Travel Plan.

Energy Strategy Submission of an energy strategy including details of CHP/use of renewable technologies, heat recovery sysyems, intellegance building management

Public Realm provision Procuring landscaping of the former Hopton Street Tower site, and bringing forward the Bankside Urban Park project in conjunction with other stakeholders.

Environmental Management Plan To be provided to the Council prior to the start of construction works and to be applied to all contractors undertaking demolition, construction and fitting out works.

Training and employment Will make a contribution towards the employment of a workplace co-ordinator and/or an employment training project. Provide desk space for the START arts workplace co-ordinator.

Tourist Information Centre Commits to identifying a location for a Toursit Information Centre within, or within the vicinity of, the Tate complex.

Demolition and Construction management Plan To be submitted to the Council and approved before the commencement of the development, which takes account of representations by neighbouring land owners and local interest groups.

Officers hope to be able to report further details of some of the above projects in the Addendum report to the Committee.

Other matters

88 The original Power Station had 12,115m2 of public open space, this was increased to 23,282m2 with the conversion of the building into Tate Modern. This includes a large public space on the north side of Tate Modern, large lawns to the south and a public open space next to the west entrance and a small community garden space to the east. The construction of Tate Modern 2 will reduce the total open space by 966m2 to 22,316m2. Future plans for a Tate Modern 3 extension would further reduce this by 1,588m2 to 21,694m2. However, whilst there will be some relatively small loss of open space in terms of area, the remaining spaces will be improved and made more usable for visitors, local residents and office workers to enjoy these spaces.

89 Tourism is one of London’s principal service industries, with over 200 museums. Tate Modern is currently the third most visited museum in Britain after the National Gallery and the British Museum and the most popular contemporary art museum globally. On average visitors who stay overnight in a hotel are estimated to spend £75 a day, whilst day visitors spend an estimated £24 a day. Of the anticipated 1 million extra visitors to Tate Modern 2, 25,000 to 50,000 are likely to stay overnight and potentially this will bring in £850,000 to £1.7 million extra local spending.

90 There are presently 565 people fte (full time equivalent) employed at Tate Modern 1. Tate Modern 2 is expected to add a further 324 (fte) jobs. In addition, there is expected to be 206 (fte) construction jobs during the development of the site.

91 Tate Modern 2 site establishment and demolition works are anticipated to commence in September 2008 with construction works commencing on site in January 2009. This would mean that Tate Modern 2 would be open by 2012.

Conclusion 92 The principle of a substantial extension to Tate Modern in this location is acceptable and complies with both Southwark Plan and London Plan policies. The case made for the scale of the extension is also accepted and would modernise the facilities and offer at Tate Modern, reinforcing its international pre-eminent status and continuing to promote the regeneration of this area.

93 The proposed new building will be a truly extraordinary and unique addition to London’s townscape, potentially a work of modern art itself. However, the height and appearance makes this a controversial new landmark building which will inevitably divide public opinion. There has been much support for the fresh and exciting new design but its success will depend very much upon getting the details and materials right.

94 There will be changes to the surrounding open spaces, with a new public square to the south and a new public pedestrian route north-south through Tate Modern. This was subject to an amendment which addressed concerns about parking for disabled visitors and cyclists, reduction in operational parking and rearranged servicing. The scheme as amended meets our policies and objectives and can be recommended for approval.

95 There have already been great regeneration benefits for the area following the opening of Tate Modern at Bankside. It is anticipated that Tate Modern 2 will further contribute to, and form the focus for the future regeneration of this area.

COMMUNITY IMPACT STATEMENT

96 In line with the Council's Community Impact Statement the impact of this application has been assessed as part of the application process with regard to local people in respect of their age, disability, faith/religion, gender, race and ethnicity and sexual orientation. Consultation with the community has been undertaken as part of the application process.

a] The impact on local people is set out above.

b] The following issues relevant to particular communities/groups likely to be affected by the proposal have been identified as the increased numbers of visitors and servicing vehicles following the opening of Tate Modern 2

c] The likely adverse or less good implications for any particular communities/groups have been also been discussed above. Specific actions to ameliorate these implications are controls over night time lighting and deliveries.

SUSTAINABLE DEVELOPMENT IMPLICATIONS

97 Tate Modern 2 will follow a low carbon strategy with energy efficient design and construction. This includes the use of parts of the concrete structure as thermal mass and a balance between providing daylighting and controlling solar heat gain. The façade has been designed to achieve the optimum balance between thermal performance and daylighting.

98 In addition to achieving high levels of energy efficiency through passive measures, to reduce heating, cooling and lighting demands, renewable energy is also incorporated. Tate Modern 2 will connect directly into the water-cooling systems of the on-site EDFE electricity substation to recover waste heat, which will be used to heat fresh air and provide hot water. The amount of waste heat recovered will provide 16% of the building energy demand on a carbon emissions basis.

99 It is also intended that a biomass boiler will provide a proportion of the required heat to the Tate Modern 2. This will provide a minimum of 10% renewable energy generation on a 10% renewable energy generation basis. (Details have not been provided so will need to be reserved by condition).

100 The flood risk assessment is very low and the effect on surface run off has been assessed as negligible to minor beneficial. A Sustainable Urban Drainage System (SUDS) has been developed in consultation with the Environment Agency, including underground storage and a porous sub-base layer beneath some of the landscaped areas.

101 Overall the development has incorporated a satisfactory range of energy efficiency and sustainability measures, including a significant amount of waste energy recovery.

LEAD OFFICER David Stewart Interim Head of Development and Building Control REPORT AUTHOR Adrian Dennis Team Leader Development Control [tel. 020 7525 5445] CASE FILE TP/1519-53 Papers held at: Regeneration Department, Council Offices, Chiltern, Portland Street SE17 2ES [tel. 020 7525 5403]

Appendix 1

Level Height Accommodation Roof 76.33m L11 67.93m Public Terrace L10 60.93m Restaurant L9 54.93m Tate Members rooms L8 48.93m Tate Forum / bar L7 41.93m Tate Lab L6 33.93m Tower gallery / bar / Terrace L5 26.93m Tate Collection / Collection interpretation L4 12.93m Tate Collection / Collection interpretation / Terrace to Turbine Hall L3 12.93m Temporary exhibitions / shop /espresso bar / offices L2 5.93m Art Space / café /shop/offices and meeting rooms L1 0.0 Ticketing / cloaks/ Art Space / Performance space -1.33m L0 - 7.57m Performance space