Leader's Committee 7 January 2003

7 JANUARY 2003

This appendix is circulated to members of Leader’s Committee only and available on request from the Leader’s Committee Co-ordinator – Cathy Cross (Ext. 2139)

Appendix 2. Unitary Development Plan Alterations – Altered text

Explanatory Note

This document includes the text of the Unitary Development Plan Alterations. The Alterations comprise the changes to the 1994 adopted Unitary Development Plan (UDP) text that have resulted from the review of the Plan. The review had 3 main stages:

• First Deposit Alterations December 1999

• Second or Revised Deposit Alterations June 2000

• Proposed Modifications July 2002

The final alterations to the 1994 UDP are shown in this document in the following ways:

• “strike through” (eg strike through) shows text to be deleted

• “underlined” (eg underlined) shows new text

• “boxed” text eg 1994 UDP policy TN32 replaced with altered policy. indicates where large sections of text (eg entire paragraphs or policies) are being replaced with new text

• “shaded background” (eg shaded background) shows non-material alterations subject to approval at Leader’s Committee on 7.1.2003 arising from consideration of representations to the Proposed Modifications 2002.

The altered text is still subject to minor editing and renumbering of paragraphs to ensure that all alterations that have been approved by the council are correctly shown. In addition, the document will require the provision of an index, list of back round documents and page renumbering, as well as removal of “strike throughs”, “underlining” and “boxed” text before it is finalised for publication. The document is accompanied by a schedule of the changes to the Proposals Map that have been made as a result of the alteration of the 1994 adopted Plan. The draft map is subject to finalisation of colours, references, nomenclature and minor drafting for the purposes of clarification.

Further details

Further information about the attached document and the Proposals Map are available from the Policy Group, Environment Department, Town Hall, King Street, W6 9JU. Telephone 020 8576 3039 or e-mail [email protected]. CONTENTS

Chapter Page

Chapter 1 Part 1 5 Chapter 1A Sustainable Development 33 Chapter 2 Population, Social Inclusion and Equality 41 Chapter 3 Land use and Structure 58 Chapter 4 Environment 70 Chapter 5 Transport and Accessibility 144 Chapter 6 Housing 217 Chapter 7 Employment 256 Chapter 8 Community Services 289 Chapter 9 Shopping 309 Chapter 9a Town Centres 336 Chapter 10 Site Proposals 363 Chapter 11 Standards 388 Glossary 430

Proposals Map alterations London Borough of Hammersmith and Fulham: UDP Alterations

UNITARY DEVELOPMENT PLAN PART 1

INTRODUCTION 7

STRATEGIC PLANNING ISSUES 7 London and the South East 7 The Borough’s Problems Issues facing the borough 8

THE NATIONAL AND STRATEGIC PLANNING POLICY CONTEXT 10 Introduction 10 National policy 10 Regional policy 12 London Planning Advisory Committee’s Strategic Advice 13 Government Strategic Planning Guidance For London 14 Conclusion 15

THE COUNCIL’S PLANNING STRATEGY 15 The Strategy 15 Reasons for the Strategy 16 1a) Sustainable development 17 1b) Social inclusion and equality of opportunity 17 2) The physical structure of the borough 17 3) Environment and sustainable development 18 4) Transport and accessibility 18 5) Housing 19 6) Economic development and employment 20 7) Community Services 20 8) The River Thames 21 9) Development schemes 21

THE GENERAL POLICIES FOR THE BOROUGH 21 Introduction 21 Implementation and resources 21 Monitoring and Review 23 Other council programmes 24

PART 1 GENERAL POLICIES 24

SUSTAINABLE DEVELOPMENT 24 Policy G0: Sustainable Development 24

POPULATION, SOCIAL INCLUSION AND EQUALITY OF OPPORTUNITY 25 Policy G1: Equality Of Opportunity Social Inclusion And Equality 25

LAND-USE AND STRUCTURE 25 Policy G2: The Physical Structure And Regeneration Of The Borough 25

Chapter 1 5 London Borough of Hammersmith and Fulham: UDP Alterations

ENVIRONMENT 26 Policy G3: Environment 26

EN10-12, EN20-21,TN7,TN10,TN11,TN16,S1 27

TRANSPORTATION AND ACCESSIBILITY 27 Policy G4: Transportation and Accessibility 27

HOUSING 28 Policy G5: Housing 28

EMPLOYMENT 28 Policy G6: Employment 28

E10, E11 30

COMMUNITY SERVICES 30 Policy G7: Community services in town centres and elsewhere: outside town centres30

THE THAMES 31 Policy G8: The River Thames and Thames Policy Area 31

SITE PROPOSALS 31 Policy G9: Large Development Sites 31

Chapter 1 6 London Borough of Hammersmith and Fulham: UDP Alterations

UNITARY DEVELOPMENT PLAN PART 1

INTRODUCTION

1.1 At the outset, it should be emphasised that this is a Plan for Hammersmith and Fulham, a particular part of London with characteristics that distinguish it very clearly from other boroughs. This borough is a unique grouping of places each having a special identity: not just Hammersmith in the north and Fulham in the south, but areas such as College Park, White City, Shepherd's Bush and Sands End, and also smaller localities. It is a unique mixture of communities reflecting this variety of places and the multi-cultural nature of the population. There is much of value in the borough’s facilities and townscape, which residents cherish and seek to preserve, but there are also serious problems, which can combine in multiple deprivation and social exclusion. The Plan has at its core a concern for the needs of all the borough’s communities while maintaining what is best and what constitutes the essential nature of Hammersmith and Fulham. It also aims to achieve the sustainable development of the borough so that the needs of future generations are not compromised.

1.2 However, this is also a Plan, which will, in various ways, contribute to the future of London into the twenty-first century. The council recognises the need to consider issues and objectives for the capital as a whole, and to work towards a coherent planning strategy that takes into account relative advantage and disadvantage in different parts of the city.

1.3 Part 1 of the Plan sets out the broad land-use and transportation policies for the borough will and provide a strategic framework for development for a period of at least 15 years from the adoption of the UDP Alteration. It relates the role of Hammersmith and Fulham in contributing to strategic aims for London with the local needs of the borough and its residents. The policies provide a link between the Secretary of State for the Environment, Transport and the Region’s Strategic Guidance for London and the detailed policies set out in Part 2 of the Plan. The Part 2 policies are intended to extend for a period of 10 years from the UDP Alteration Plan’s adoption date, although some policies will be applicable for a longer or indefinite timescale. In accordance with the regulations, the justification for the Part 1 policies is set out in Part 2. The following sections provide a general context for the policies in relation to Strategic Planning Issues (paragraph 1.4), The National and Regional Planning Context (paragraph 1.16) and the council’s Planning Strategy (paragraph 1.29).

STRATEGIC PLANNING ISSUES

London and the South East 1.4 It is clear that London has a number of overlapping roles. It is a world centre for international trade and business, the national capital, and a major tourist centre; and, it dominates the south-east of England, providing a place of work, entertainment and shopping for many people living in the region. However, London is also a city that provides a home for a large and multi-cultural population living in numerous distinct residential neighbourhoods, and relying on a complex network of town centres, employment areas, leisure facilities and transport systems.

Chapter 1 7 London Borough of Hammersmith and Fulham: UDP Alterations

1.5 There are many major international changes taking place which are likely to have far-reaching effects on the future of London, for example the opening of the Channel Tunnel, the restructuring of Europe and the move towards greater European union. The European Union is increasing its involvement in environmental issues such as the control of pollution. The British economy, especially in Central London, is so heavily dependent on the financial, business and tourist sectors that it is extremely vulnerable to international changes outside the control of the Government. It is unclear how Britain’s position in Europe will be changed in future years. There will be great opportunities but there is also the likelihood of increasing competition from European regions and cities in terms of trade, services and employment.

1.6 The south-east region of England is the most populous and prosperous in the country (although a long way down the league of European regions) and is dominated by London. Overall the south east has a buoyant and successful economy, and its environmental assets, quality of life and accessibility are factors that sustain and attract new investment. However parts of the region, and London in particular, has been proportionately worse affected by the economic recession than other parts of the UK. are subject to threats, which could undermine its prosperity. However, It is also the most congested region in the country with an inadequate transport infrastructure and development pressures (especially associated with the Channel Tunnel) that threaten the environment in rural and urban areas. Alongside the prosperity of the region there is also poverty and homelessness and increasing polarisation between rich and poor. Unemployment and labour shortages co-exist because many of the unemployed do not have the skills which the expanding sectors of the economy require. SERPLAN, in "A New Strategy for the South East" (1990), identifies a key regional feature as the basic imbalance between the western and eastern sectors. Regional Planning Guidance for the South East (1994) expects a change in the balance of new development in the region from the West to the East because in the medium to longer term, environmental constraints and transport congestion limit the capacity to provide for substantial new growth to the west and south of London.

1.7 Within London there are great differences in the quality of life of residents, relating to their income, housing and environmental conditions, mobility, access to facilities and employment, and other personal circumstances. Many people are particularly disadvantaged because of factors such as disability, the effects of past or present discrimination, or caring responsibilities. Often there is poverty and social exclusion related to multiple deprivation of based on unemployment, housing stress, the fear of crime and a poor environment,. This is particularly the case in parts of the inner boroughs (see for instance “Getting the Measure of Exclusion”, London Research Centre 1999 1991 Census County Report: Inner London (Part 1);1991 Census Monitors (OPCS 1992) DOE Information Note No. 2 1993; "Unemployment in the South East", South East Regional Planning Conference (SERPLAN) 1991; London Housing Statistics 1991, London Research Centre 1992). Development pressure can bring opportunities and benefits but private investment is normally focused on areas favoured by the market. It is often difficult to direct development to meeting local social and economic need and there can be adverse effects from increased road traffic.

The Borough’s Problems Issues facing the borough 1.8 The borough of Hammersmith and Fulham has experienced rapid change in recent years in the social composition of the population, the local economy and in its physical character. There are a number of pressures and problems facing the

Chapter 1 8 London Borough of Hammersmith and Fulham: UDP Alterations

borough, which the Plan can address. However, it must be recognised that different sectors of the population can experience these in different ways, or have their own particular problems as a result of a variety of factors such as income, mobility, age, ethnic background, disability and caring responsibilities.

1.9 The area is part of the ‘inner city’ (Fig 3.1) and has suffered from the trends affecting inner city areas throughout Britain. It is also part of the Western Wedge as identified by SERPLAN in Draft Regional Planning Guidance, and despite suffering during the recent recession, the area remains one of the most prosperous areas in the UK. There has been a major decline in traditional manufacturing with a consequent loss of local unskilled and semi-skilled jobs. Much of the 19th century housing is in poor condition. Environmental conditions on some while the large inter- war and post-war, high density council estates suffer from a poor environment which can exacerbates the social and economic problems of those who live there but there have been significant improvements in conditions in recent years. Some of the busiest, most polluted, roads and junctions in London are located within the borough and the borough’s radial roads to and from central London suffer disproportionately from the effects of through traffic. It is a heavily built up area with limited open space.

1.10 Although the borough suffers from the symptoms of deprivation which characterise many inner city areas, the borough’s proximity to central London, astride the main radial routes leading to the west and with direct road and rail links to Heathrow, make it a very attractive location for office development. Professional, managerial and a range of service industry jobs have been created but many local people, particularly those formerly in manual occupations and school leavers with few qualifications, do not have the appropriate skills. At the same time office development has led to the displacement of uses that are relevant to the local community, for example manufacturing and community facilities, and has meant that land for these uses is both scarce and expensive. The position is made more complicated by the cyclical nature of demand for land for offices and the effect of changes in the national economic situation.

1.11 The overall housing situation has been one of increasing numbers of households with relatively high incomes moving into the borough and a widening gap between these households on the one hand and low income households (many in council accommodation) on the other. These two contrasting aspects are reflected in the physical environment which ranges from prosperous areas with well-maintained houses (owner-occupied, and with one or more cars) to areas where many residents suffer multiple deprivation and occupy housing which is in need of extensive improvement and repair.

1.12 A particular pressure, in the latter part of the 1980s, was has been created by the value of housing for sale. The intense competition for sites for private sector housing put severe pressure on other land uses, particularly industry and other uses which primarily serve local needs, adding to the pressure on firms to close or relocate elsewhere and further diminishing job opportunities. The profitability of housing for sale has also meant that the stock of private rented housing, which in post-war years has formed a source of cheap housing, has rapidly diminished. In 1990 the demand for housing land for private housing declined, probably as a result of high interest rates, but a revival in the market is likely as the economic situation improves and there are indications that this has already started. Housing associations have been particularly active in recent years.

Chapter 1 9 London Borough of Hammersmith and Fulham: UDP Alterations

1.13 In the situation where the council’s own capital allocation for house building from Central Government is extremely limited, a substantial number of people face the prospect of having to continue living in overcrowded or unsatisfactory conditions or at worst becoming homeless. Housing association investment has increased in recent years and there has been an increase in the number of housing association dwellings completed. However housing association investment is projected to decrease again. The cost of land and Government constraints on local authority spending make it difficult for the council to take direct action to provide housing, employment uses drawing on a range of skills, or leisure or community facilities to meet local needs.

1.14 The interrelationship between the various challenges facing the borough is complex, particularly as many of the issues are not confined to borough boundaries and have London-wide implications. In land-use terms there is a conflict between the competing requirements of a variety of users. This is perhaps most evident in the need to provide for land for affordable housing, community services and other relatively low land value activities, and the demand for land for private residential and commercial uses. Of these, the latter have particular implications for the traffic network and the environment in general.

1.15 The role of the Unitary Development Plan is to balance conflicting pressures for the scarce resources of land and buildings in such a way as to meet the needs and aspirations of the local community, including those who are the most disadvantaged and often least vocal members of the community, whilst at the same time taking into account London-wide and national interests.

THE NATIONAL AND STRATEGIC PLANNING POLICY CONTEXT

Introduction 1.16 In preparing the policies in the Plan the council has had regard to the Government’s views on the approach planning should take at national, regional and London-wide levels. In addition, it has taken into account the views of the London and South-East Regional Planning Conference (SERPLAN) and the London Planning Advisory Committee (LPAC). The extent to which the Part 1 policies reflect this guidance and advice is explained in the justification for the policies which is set out in Part 2 of the Plan. This section outlines the general context of national, regional and London-wide policy.

National policy 1.17 The national policy context for planning is set out in legislation, and in a series of Planning Policy Guidance Notes and Circulars issued by the Department of the Environment (see Annex II). They cover a range of topics and are referred to as appropriate in the justifications of this Plan’s policies. The guidance also deals with the scope and content of development plans and for Part 1 this is set out in PPG12 (February 1992 :

1.18 The Government has summarised its various policies and programmes relating to all aspects of the environment in the White Paper "This Common Inheritance". The Council has taken this into account, particularly to the extent that it provides up-to-date Government views on the role of land-use planning. The document also indicates directions for future Planning Policy Guidance and states

Chapter 1 10 London Borough of Hammersmith and Fulham: UDP Alterations

the Government’s approaches to improving the environment as including the following overall objectives (page 17: S.2):

* protecting the physical environment through the planning system and other controls and incentives * using resources prudently, including increasing energy efficiency and recycling, and reducing waste * controlling pollution through effective inspectorates and clear standards * encouraging greater public involvement, and making information available.

1.19 The council has also had regard to the commitment to Agenda 21 and Sustainable Development entered into by the Government at the UN Conference on the Environment and Development in 1992 (the "Earth Summit"), and which has implications for many council policies and activities. The Government has set out its policy in “A better quality of life - A strategy for sustainable development for the UK” (May 1999).

The Government in Planning Policy Guidance Note 12 Development Plans and Regional Planning Guidance (February 1992 December 1999]) states in paragraph 1.8 4.1 [*“The planning system, and development plans in particular, can make a major contribution to the achievement of the Government’s objectives for sustainable development.”]

“The Government has made clear its intention to work towards ensuring that development and growth are sustainable. It will continue to develop policies consistent with the concept of sustainable development. The planning system, and the preparation of development plans in particular, can contribute to the objectives of ensuring that development and growth are sustainable.”

PPG12 continues in para. 6.1:

“Local planning authorities have a key part to play in helping to achieve the vision for Britain and the environment in the 1990s set out in that White Paper. One major responsibility is to ensure that development plans are drawn up in such a way as to take environmental considerations comprehensively and consistently into account. In this way environmental improvement can be plan-led, and individual development decisions taken against an overall strategic framework that reflects environmental priorities.” and para. 6.3:

“Local planning authorities should take account of the environment in the widest sense in plan preparation. They are familiar with the “traditional” issues of Green Belt, concern for landscape quality and nature conservation, the built heritage and conservation areas. They are familiar too with pollution control planning for healthier cities. The challenge is to ensure that newer environmental concerns, such as global warming and the consumption of non-renewable resources, are also reflected in the analysis of policies that forms part of plan preparation.”

Planning Policy Guidance Note 13 Transport (March 1994 2001) provides further guidance on the interaction between land-use and transport and on the implementation of sustainable development in transport policies. Paragraph. 1.3 states:

Chapter 1 11 London Borough of Hammersmith and Fulham: UDP Alterations

“The location and the nature of development affect the amount and method of travel; and the pattern of development is itself influenced by transport infrastructure and transport policies. By planning land use and transport together in ways which enable people to carry out their everyday activities with less need to travel, local planning authorities can reduce reliance on the private car and make a significant contribution to the environmental goals set out in the Government’s Sustainable Development Strategy”.

“By shaping the pattern of development and influencing the location, scale, density, design and mix of land uses, planning can help to reduce the need to travel, reduce the length of journeys and make it safer and easier for people to access jobs, shopping, leisure facilities and services by public transport, walking, and cycling”

In addition, Paragraph 20 states:

“Local authorities should seek to ensure that strategies in the development plan and the local transport plan are complementary: consideration of development plan allocations and local transport priorities and investment should be closely linked”.

Regional policy 1.20 Regional Planning Guidance for the South East: RPG9 (March 1994 2001) states in paragraphs. 1.6-1.9 3.1: that the guidance “has a vision of encouraging economic success throughout the Region, ensuring a high quality environment with management of natural resources, opportunity and equity for the Region'’ population, and a more sustainable pattern of development"”

In Paragraph 3.2 it states:

“The four objectives for sustainable development, as set out in the Strategy for Sustainable Development in the UK are:

a) social progress which recognises the needs of everyone; b) effective protection of the environment; c) prudent use of natural resources; and d) maintenance of stable levels of economic growth and employment”.

“Planning policies should be directed towards several broad objectives: enhanced economic performance; sustainable development and environmental improvement; opportunity and choice. This guidance embodies all these objectives, which should be pursued together, and seeks to achieve an appropriate balance between them”.

In order to achieve these objectives, Regional Planning Guidance identifies in para.1.10 the following main principles which will govern the development of the region:

“(i) All development should be planned in ways which work towards securing the objectives of sustainable development.

(ii) The immediate priority is to provide for market-driven development so as to accelerate economic recovery, in particular, through the use of existing planning permissions, land already allocated in development plans, and available or

Chapter 1 12 London Borough of Hammersmith and Fulham: UDP Alterations

programmed infrastructure. Planning policy should not seek to constrain economic activity at a regional level.

(iii) Sufficient housing appropriate in size, quality, type and location should be provided within the Region to meet the needs of its population and household growth without putting excessive pressure on adjacent regions.

(iv) The fullest possible use should be made of opportunities for redevelopment and recycling of urban land. The aim should be not only to secure development and urban regeneration, but also to improve the urban environment and reduce the need to take greenfield sites for development. It is important to ensure that urban areas provide a good environment in which to live and work and that development does not result in loss of valuable urban open space.

(v) Development should respect the Region’s valuable environmental features and avoid the wasteful use of land and other natural resources. Firm protection will be maintained over Metropolitan Open Land, Green Belts,

(vi) Planning and transport policies should be co-ordinated to maintain and improve communications with continental Europe and inter- regional movement through the South East; to help reduce congestion in areas of development pressure, in particular in parts of London and to the west of London; to provide a better relationship between homes, workplace and other activities so as to reduce the need to travel; to encourage the use of energy efficient modes of transport; and to facilitate environmental improvement.”

London Planning Advisory Committee’s Strategic Advice 1.21 One of the main functions of the London Planning Advisory Committee has been was to advise the Secretary of State for the Environment on the guidance he or she should give to London boroughs for the preparation of their Unitary Development Plans. LPAC’s Strategic Advice on Strategic Planning Advice Guidance for London (1994) was unanimously agreed by all the boroughs, after wide consultation, as their joint view of the level and direction of guidance they needed from the Government on strategic issues. It has a four-fold vision of London as a consisting of:

• civilised city offering a high quality of environment for all Londoners; • world centre of international trade and business; • city of opportunities for all; • city of stable and secure residential neighbourhoods capable of sustained community development.

1.22 These themes, which this Council supports, are carried forward in the Advice into an overall strategy and set of suggested policies. LPAC gives particular consideration to the interrelationships between topics, including the co-ordination of land use and transportation, and also identify the need to promote a clear concept of the physical structure of London. The elements of this structural approach include responding to the pressures on central London and the problems facing many town centres, recognising areas of community need, and addressing the imbalance between east and west London.

1.23 LPAC has published 1994 Advice on Strategic Planning Guidance for London. This Advice has been forwarded to the Government and will lead to a revision of Strategic Planning Guidance. However the latter is not expected to be

Chapter 1 13 London Borough of Hammersmith and Fulham: UDP Alterations

issued until late 1994, and will form the basis for the review of the UDP. 1994 Advice places more emphasis on environmental concerns than 1988 Advice. The new four- fold vision for London is a city with:

• A strong economy • A good quality of life • A sustainable future • Opportunities for all

1.21a Much of LPAC’s advice has been taken on board in the Government’s Strategic Guidance of May 1996.

Government Strategic Planning Guidance For London 1.21b In May 1996, the Government issued “Strategic Planning Guidance for London Planning Authorities” (RPG3) supplemented in February 1997 by “Strategic Guidance for the River Thames” (RPG3B/9B). These provide considerable guidance which has been taken into account in reviewing the original 1994 UDP. In summary, the overall strategic objectives (RPG3 paragraph 1.14) are:

• promote London as a world class city... • maintain and enhance the competitiveness of business... • encourage a pattern of land use and provision of transport which minimises harm to the environment and reduces the need to travel especially by car... • promote urban regeneration... • enhance the vitality, viability and character of town and other local centres... • maximise housing provision ... to meet the changing needs of the population • maintain and improve the natural and open environment... • improve the quality and attractiveness of London’s urban environment... • facilitate the development of transport systems which are safe and efficient, and which contribute to the achievement of competitiveness, regeneration and environmental quality • seek to improve air quality, to reduce waste, pollution and the use of energy, and to encourage recycling.

1.24 The Secretary of State for the Environment having considered LPAC’s 1988 Advice issued Strategic Planning Guidance for London in July 1989, to provide a framework for the preparation of Unitary Development Plans. This is the principal document the Council must have regard to in preparing Part 1 of the Plan.

1.25 The vision of the Strategic Guidance is that:

“London in the 1990s must be a city where enterprise and local community life can flourish, where prosperity and investment will continue to increase, where areas which had declined will find new roles, where movement will become easier and where the environment will be protected and improved”. 1.26 The objectives of the Guidance, which the Government states should be reflected in UDPs, are to:

Chapter 1 14 London Borough of Hammersmith and Fulham: UDP Alterations

* foster economic growth bearing in mind the importance for the national economy of London’s continuing prosperity; * contribute to revitalising the old urban areas; * facilitate the development of transport systems which are safe, efficient and have proper respect for the environment; * maintain the vitality and character of established town centres; * sustain and improve the amenity of residential districts; * allow for a wide range of housing provision; and * give high priority to the environment, maintain the Green Belt and Metropolitan Open Land, preserve fine views, conservation areas, surrounding countryside and the natural heritage.

1.27 The Guidance sets out various topic areas within which UDPs should include policies: business and industry, transport, housing, open land and the natural environment, the built environment, retailing, tourism, sport and recreation, the River Thames and waste disposal. However, the Guidance is set out in general terms with little in the way of direction to the Boroughs, an exception being the housing targets. In relation to transport, the Guidance notes the importance of the Secretary of State for Transport’s "Statement on Transport in London" of January 1989.

Conclusion 1.28 Although Strategic Guidance for London and the Thames are is the principal documents to which the council must have regard in preparing the Unitary Development Plan and carrying out its planning functions, more recent Regional Planning Guidance, Planning Policy Guidance Notes and National and European policy must also be taken into account. In addition the London Planning Advisory Committee’s Strategic Advice more recent advice continues to be of considerable value. particularly because of its lengthier consideration of policy directions. There is little conflict between Strategic Guidance and 1988 Strategic Advice. While the Secretary of State did not include all that LPAC thought appropriate he did not dismiss its views on a wide range of matters, so the advice often provides, in effect, a more detailed consideration of principles set out in the Guidance. It should be noted that LPAC also has a statutory duty to advise boroughs on matters of common interest. In addition, it has an important monitoring role which enables it to provide boroughs with up-to-date advice on development trends and the implications of strategic policies, which is an important consideration in applying the Secretary of State’s Guidance. This council considers, therefore, that it should take into account and give a great deal of weight to the advice LPAC has already issued and will continue to give, provided this does not conflict with the Government’s National and Strategic Planning Advice. SERPLAN’s views on strategic directions for the south east are also valuable, although they do not have statutory status.

THE COUNCIL’S PLANNING STRATEGY

The Strategy 1.29 Having considered the principal issues, the Government’s Strategic Planning Guidance and the other planning policy context, the council has developed a planning strategy which is aimed at achieving a sustainable improvement in improving the quality of life in the borough while having regard to the future of London as a whole. It is clear in considering the issues facing the borough that decisions on the use of land and pattern of development must be based on more than the immediate physical factors. The Plan must have regard to the social and

Chapter 1 15 London Borough of Hammersmith and Fulham: UDP Alterations

economic conditions in the borough and the implications these have for land use and its distribution. The policies must also contribute to ensuring that development are is environmentally and otherwise sustainable. It is also clear that the way in which different sectors and groups within the population experience the environment (due to disability for instance), and the varying needs they have, must be material factors for planning. The strategy consists of the following interlinked principles:

• To apply the principles of sustainable development with particular regard to ensuring social progress and equality of opportunity[;], protection of the natural and built environment [;] the prudent use of natural resources, and the maintenance of high and stable levels of economic growth and employment. • To apply all the policies of the Plan so as to best meet the need for equality of opportunity for all. The Council will to tackle social exclusion and overcome poverty, disadvantage and discrimination, and to promote greater fairness and best meet equality of opportunity for everyone. • To sustain a coherent and co-ordinated land use and transportation structure in the borough: basing this on the different functions and character of places and areas (such as town centres and residential districts); the needs of people living and working in various localities; accessibility between homes, jobs and facilities; and the London-wide context. • To conserve, protect and enhance the quality, character and identity of the borough’s built and open environment; and to address wider environmental issues such as the sustainability of development, global warming, and resources and energy conservation, and management of waste as far as possible through local land use and transportation planning. • To provide adequate accessibility for persons and goods consistent with the safety of the individual and a satisfactory local environment. • To improve, as a high priority, the quantity and quality of the housing stock and ensure a choice of accommodation for the borough’s population including those on low income or with special housing requirements. • To sustain a wide range of economic activities in the borough, subject to satisfactory environmental conditions, and to ensure that all borough residents have access to an adequate supply of local jobs. • To plan for an adequate range of convenient facilities available to all sections of the community, for shopping, recreation and entertainment, the arts, culture, health, education and other purposes. • To protect and enhance the character, use and ecology of the River Thames and the riverside. • To ensure that larger development projects provide direct and clear benefits to the local community and respect the environment. • To promote and encourage the suitable use or development of vacant and under used land and buildings.

Reasons for the Strategy 1.30 The reasoning behind these principles is set out below, and, in the section of this Chapter starting with paragraph 1.47, each is developed into the general policies of the Plan.

Chapter 1 16 London Borough of Hammersmith and Fulham: UDP Alterations

1a) Sustainable development 1.30a The most commonly used definition of sustainable development is development that meets the needs of the present without compromising the ability of] future generations to meet their own needs. Planning policies have an important part to play in helping the whole community to meet its social and economic needs while aiming to ensure that people both now and in the future are not socially excluded because of a lack of adequate housing, limited job opportunities, poor access to local facilities or a poor environment. The UDP can address these issues in the way in which it allocates land for different purposes, seeks to protect and encourage local facilities, and promotes integration of land-use and transportation. In addition, it sets principles by which new development must be considered with a view to ensuring it does contribute to the long term sustainable regeneration of the borough and improvement of the environment.

1b) Social inclusion and equality of opportunity 1.31 The Plan should address the needs of all sections of the population but with particular regard to those who are disadvantaged for various reasons. It should recognise the ways in which land use and transportation policies can affect some people more than others because of differences in personal mobility, income, caring responsibilities, sex, ethnic background or disability, including physical disability and mental illness. In the last case of disability, it should recognise that it is not just a person’s disability that creates the problem, it is the environment that imposes the disadvantage. Government guidance (PPG12 December 1999, Paragraph. 4.11) states that in preparing detailed plans authorities:

“authorities should will wish to consider the relationship of planning policies and proposals to social needs and problems, including their likely impact on different groups in the population, such as ethnic minorities, religious groups, elderly and disabled people, women, single parent families, students, and disadvantaged and deprived people living in inner deprived urban areas”.

The Council accepts the London Planning Advisory Committee’s vision of London as:

“a city of opportunities for all”.

2) The physical structure of the borough 1.32 Strategic Guidance identifies the importance of structural features such as town centres, open land, green chains and the Thames. LPAC’s Strategic Advice presents a detailed structural strategy for London. The council’s view is that the proper planning of the borough should be based on a clearly understood pattern of land use that is well related to the transportation network. This is necessary not only with regard to the quality of life of borough residents but also to ensure that the borough is integrated in the land use structure of London. Hammersmith and Fulham should contribute to the social and economic health of the Capital. It must be recognised that borough facilities are used by people from elsewhere and that some places in the borough are amongst the most attractive business locations in London, providing employment for workers from a wide area.

1.33 This is not to say that there should be rigid zoning where acceptable mixes of land uses are discouraged. However, it is important to establish the principles that will apply in different places and areas according to their existing functions and character, local needs, levels of transportation accessibility and road capacity. In

Chapter 1 17 London Borough of Hammersmith and Fulham: UDP Alterations

this way land uses can be directed towards suitable locations and discouraged from going to places where there could be environmental conflict or where land uses that are needed more would be prevented. A clear structure will help prevent uncertainty over what is acceptable in different areas and provide a good basis for planning for the needs of the borough and of London as a whole.

1.34 The main structural elements in the land-use of the borough, which overlap to some extent, are the three town centres, the employment zones, key local shopping centres, residential areas, conservation areas, the river and riverside, green corridors, and the network of open spaces. There are two areas of, and the major area of change, namely on the riverside in Sands End and the White City Centre Development. It is important to recognise the way in which the structure of the borough relates to features outside, including the barrier effects of the river, major roads and railways. The northern part of the borough is included within the Park Royal Regeneration Area as defined by the Park Royal Partnership of which the council is a member. Much of the borough is a regeneration area receiving funding form the Government’s Single Regeneration Budget.

3) Environment and sustainable development 1.35 The achievement of a high-quality, safe and pollution free environment which retains local character and identity must be a fundamental concern of planning. This is important in relation to the quality of life of residents and as an essential element in the attractiveness of London to business and visitors. In addition, there is increasing concern about ecology nature conservation, energy and resource conservation, waste management and the wider effects of pollution and global warming, and this concern should be reflected in local land-use and transportation policies. The need to reduce carbon dioxide emissions for instance indicates that new developments should be guided to locations which reduce the need for car travel or allow the choice of more energy-efficient public transport.

1.36 Environmental objectives are stressed in National and Strategic planning guidance, and have been emphasised in the Government’s White Paper on the Environment: " This Common Inheritance". Sustainable development strategy for the United Kingdom (May 1999). The Government has asked councils to have particular regard to the conservation of energy as an issue in development plans. It has also indicated, in particular, the need to consider the relationship of new development to traffic generation as part of the aims of tackling global warming.

1.37 Concern for the environment is an essential part of the council’s planning strategy and is incorporated in all the Plan’s policies. Fundamentally, the council wishes through its policies and control of development to ensure, as far as possible, that development and growth are sustainable. This means that future generations should not be prevented from enjoying a satisfactory environment by decisions taken now.

4) Transport and accessibility 1.38 The council’s scope for action is limited insomuch as other agencies also have responsibilities for key aspects of the transportation infrastructure, particularly the trunk road system and public transport services. However, it will seek to make provision for adequate accessibility to facilities for all borough residents. This will be primarily through the efficient co-ordination of land-uses, thereby reducing the need for additional travel, together with safeguarding the quality of the environment. The strategy will include specific policies and proposals on the overall development of the

Chapter 1 18 London Borough of Hammersmith and Fulham: UDP Alterations

transport network and related services, such as new railway stations, and the river and canal seek to restrain the use of private cars, particularly at the busiest locations and times, by the application of effective traffic management and parking control measures, (in accordance with Strategic Guidance) and to secure such improvements to public transport as may be necessary to provide an attractive, reliable and accessible alternative to travel by private car. and the provision to be made for cycling and walking. Furthermore, through the application of planning controls the council will seek to influence the location, scale, density and mix of land uses to help reduce the need for travel and encourage people to walk, cycle and use public transport. This is in accordance with an aim expressed in the White Paper "This Common Inheritance" (para.6.34), which notes the environmental considerations relating to transportation, and with the guidance provided by PPG13 on Transport.

5) Housing 1.39 Access to decent housing is an essential element of a person’s quality of life, so there must be a range and sufficient quantity of satisfactory dwellings, especially to meet the needs of the homeless and those on low incomes. This is also important to provide London with a labour force with the necessary variety of skills to sustain a buoyant economy and provide a comprehensive range of services in health, education, social services and consumer services. Strategic Guidance includes general guidance for increasing the housing stock in London as a whole and in individual boroughs (and this relates to SERPLAN’s estimate of need in the south east). This borough has a housing provision figure, drawn from RPG3, of at least 4,950 net additional dwelling completions between 1992 and 2006. A capacity study carried out by LPAC in 1999 to inform the London Mayor’s proposed Spatial Development Strategy indicates that the borough could accommodate about 5,890 additional dwellings in the period 1997 - 2016. This figure is subject to further analysis and review and will not be finalised until the Spatial Development Strategy has been published. Given that some 3370 dwellings have been completed in the period between 1992 and 2001, and having regard to the scale of existing provision to 2006, present indications are that it would be expedient for the UDP policies and proposals to make sufficient provision for somewhere in the order of 1900 dwellings to be completed within the residual period of the UDP Alteration Part I Strategy thus aiming to provide for completion of the London Mayor’s provisional figure of 5890 dwellings. Its figure of 9,500 additional dwellings for this borough may not be achievable but the extent of the need is such that planning in the Borough should treat achieving an increase in housing as a priority. However, t The council shares the concern of LPAC and SERPLAN that new housing provision should be affordable to the wide range of people who may seek accommodation. Planning Policy Guidance Note 3 Housing (March 1992) Circular 06/98: Planning and Affordable Housing (April 1998) states:

“A community’s needs for affordable housing is a material planning consideration which may properly be taken into account in formulating development plan policies and deciding planning applications.”

In "This Common Inheritance" (para. 6.5) the Government also lists one of the priorities for land use policies as being:

“housing to meet the needs of all sectors of society”. Unless a substantial amount of affordable housing is made available new housing will not provide accommodation for all the borough residents who are in housing need.

Chapter 1 19 London Borough of Hammersmith and Fulham: UDP Alterations

PPG3 also states in para. 43:

“Most commonly, the best way of ensuring that affordable housing will be enjoyed by successive as well as initial occupiers of property is by the involvement of a housing association or other social body (e.g. a trust) providing housing for rent or shared ownership: the body’s continuing interest in the property will ensure control over subsequent changes of ownership and occupation.”

6) Economic development and employment 1.40 There should be a range of good quality jobs in accessible locations, together with facilities for training and childcare, to improve the ability of residents to obtain employment that meets their needs and aspirations. It is necessary, in line with the objectives of Strategic Guidance, LPAC and SERPLAN (see Paragraph 1.28) to have regard to the buoyancy of London’s economy as a whole, and the locational attraction to business of some parts of the borough.

1.41 [Moved to paragraph 3.21b in Chapter 3]

1.42 It is not appropriate that there should be further major growth of business in the borough, beyond the substantial development pipeline, where this is incompatible with environmental objectives or the need for housing or other facilities. Where large schemes are proposed they should be tied into the local labour market so that significant numbers of jobs could be taken by local people using their present skills or with the benefit of training. The council agrees with LPAC and SERPLAN that it is not satisfactory if developments rely heavily on drawing labour from far away with a consequent addition to congestion on the transport networks, especially if this is at the expense of vital economic growth in other parts of inner London or east London. This approach is clearly consistent with Strategic Guidance which emphasises the need to take account of the implications of economic growth on environment and transport, and stresses that policies for London can aim at improving the attractiveness of East London to redress the imbalance between West and East.

7) Community Services 1.43 It is important that there should be a sufficient range of facilities for shopping, recreation, open space, entertainment, education, health and welfare purposes, and these should be in convenient locations for all residents. This is vital for those members of society who have low personal mobility because of disability, caring responsibilities or low income.

1.44 The main elements of this part of the strategy include sustaining the three town centres, which is an objective common to Strategic Guidance and Advice, and protecting them against major out of centre development. There should also be a network of local shopping centres, and a strategy of safeguarding and improving the provision of facilities throughout the borough and especially in residential areas. It must also be recognised that some of these facilities have an importance beyond the borough boundary especially for shopping, public open space, health and entertainment.

Chapter 1 20 London Borough of Hammersmith and Fulham: UDP Alterations

8) The River Thames 1.45 The river is of major strategic and local importance, as recognised by Strategic Guidance RPG3b/9b, and has a separate emphasis in the council’s strategy.

Policies need to address its value in terms of access, environment, heritage, ecology nature conservation, commercial use and recreation; and, to consider how riverside development should take place. This must all have regard to the fact that the river is shared with others, in particular the boroughs on the opposite bank. One of the major areas of change in this borough is the Sands End riverside where detailed policies to guide development are set out in the Plan. Other major changes which will affect the river’s character are proposed taking place in the London borough of Richmond, at Barn Elms reservoirs, and in Wandsworth.

9) Development schemes 1.46 The borough has been subject to intense development pressure for much of the last twenty years and this is likely to continue. Development can bring local benefits and play a part in the necessary revitalisation of inner urban areas like Hammersmith and Fulham. Often, however, while benefiting business, proposed schemes make little additional contribution to the locality while they would change the area’s character and lead to increased traffic congestion. Planning must continue to ensure that development schemes contribute to meeting the needs of London and, in particular, all borough residents, for housing, jobs and community facilities; and, that they have regard to the local labour market; and accord with the principles of sustainable development as well as respecting the environment and character of the townscape as a whole.

THE GENERAL POLICIES FOR THE BOROUGH

Introduction 1.47 The council’s planning strategy, set out in the previous section, has been developed into nine broad but specific policies for Part 1 of the Unitary Development Plan. These policies are generally related to one element of the strategy. Each is supported by the justification and more detailed policies in Part 2 of the Plan.

Implementation and resources 1.48 Implementation of the policies and proposals in the Plan will depend upon the actions of both the private and the public sector. There are three types of action available to the council:

(i) direct action and in partnership with others, involving the commitment of its own resources of finance and land, e.g. through its housing programme and the use of funding secured through Single Regeneration Budget, the Lottery and other sources or by investing in infrastructure to attract private investment, or where appropriate by acquisition and disposal of land and buildings - if necessary by compulsory purchase powers;

Chapter 1 21 London Borough of Hammersmith and Fulham: UDP Alterations

(ii) control over the actions of other agencies, e.g. through the determination of planning applications; and

(iii) an advocacy role in respect of those issues where responsibility lies with other agencies, including the private sector e.g. through the issue of development briefs, design guides, or support for a particular proposal.

1.49 In preparing the policies the council has had regard to the likely availability of financial and other resources, in the public and the private sectors, so that the Plan’s proposals are realistic and make the best use of available resources. However, bearing in mind that the Plan looks about 10 years ahead, assumptions can only be in broad terms. It will be necessary to monitor the situation and consider the need to review policies during the life of the Plan.

1.50 The financial resources available to both the public and the private sectors are affected by the performance of the national economy, but for public authorities Government policies have a more important effect on the level of expenditure which they can contemplate. The present system of controls and regulations imposed by the Government means that direct council action will be limited, at least within the early years of the Plan, and also makes medium and long term capital planning extremely difficult. Strict Government controls also apply at present to other public authorities but funding to Housing Associations Registered Social Landlords has been increased in recent years.

1.51 The restraint on public expenditure means that private investment is likely to provide the primary source of funds for implementing the policies and proposals of the Plan. The council’s view is that this must be directed to achieve a wide range of land uses and other land-related benefits to help meet the needs of the local community, and that it is not acceptable for private development to be aimed only at a narrow band of high value uses such as speculative office development and expensive housing. Wherever possible the council will work with the private sector for the achievement of this goal. The council recognises that establishing partnerships with private business and public bodies, including adjacent boroughs can be an effective way of implementing planning objectives. It is already a member of the Park Royal Partnership which covers an area that extends into the north of the borough.

1.52 The council will seek to implement many of the Plan’s policies through development control applied to the proposals of the private sector and other agencies. This is not a purely negative control as it provides the opportunity to ensure, through clearly stated land use policies, negotiation, and planning obligations, that development contributes to enhancing the environment and meeting community needs. The council will itself take positive action when appropriate, including the use of compulsory purchase powers, in order to secure development whether by itself or by other agencies, in accordance with the policies of the Plan.

1.53 Because the use of most land in the borough is fixed and there is a very limited supply of unused land available for development there will often be competition between various uses for sites. In an uncontrolled situation all sites would be developed for the highest value uses, and some uses which would provide important local benefits would not be in a position to compete. The Plan tries to reconcile the demands for different types of development land and the need to provide less profitable uses.

Chapter 1 22 London Borough of Hammersmith and Fulham: UDP Alterations

1.54 In addition, there is often pressure to develop to a higher density because the high cost of land would make a less intensive development uneconomic. However, there could be major disadvantages from very intensive development in terms of the effect on the amenities of existing premises, the appearance of the area, the local environment and traffic generation. Consequently the Plan contains policies which limit the bulk of development for these reasons. There may also be more widespread environmental implications such as the impact on water resource availability, sewerage services and infrastructure in the region.

1.55 The consideration of human resources in relation to the implementation of policies and proposals in the Plan is important, principally, in terms of demand for facilities and services, and labour supply. Demand arises out of the characteristics of the local population and its needs for housing, recreation, entertainment, shopping and other services. Labour supply has two aspects, firstly the characteristics of the actual, and potential, economically active population and the existence of unemployment; and, secondly, consideration of how employment opportunities for this population could be effectively expanded through training and childcare provision. In all this, the council must clearly take into account the fact that the borough, as part of London, is not a self-contained area providing all its needs within its boundaries. However, it is important to consider carefully the strategic implications of development in the borough which does not relate to a reasonable extent to local demand or labour supply: implications, for instance, in terms of increased long distance travel and greater road congestion.

Monitoring and Review 1.56 It is very important, in view of the status given to the Plan in development control (Town and Country Planning Act 1990 Section 54A), to ensure that its policies remain applicable, effective and up-to-date. The council will carry out a continual process of policy monitoring and review in order to establish the need for any formal alterations to the Plan. This will investigate, amongst other factors, whether policies are still having the desired effects and whether circumstances continue to justify the policies. The council will also have regard to any changes in Government Guidance at a national, regional or local level and to the views of the London Planning Advisory Committee.

1.57 The methods to be used for monitoring and review could include research studies, planning and appeal decisions analysis, monitoring of development activity and land availability, analysis of census information, analysis of transportation use and movement patterns, opinion and personal surveys, and consultation. However, the resources available for such work are limited and will need to be directed to priority areas. The council will draw on monitoring work carried out by other organisations, particularly those with a London-wide perspective. It will also take into account public comments on planning matters in the borough and seek the views of appropriate groups representing the local community and business.

1.58 It is expected that the council will aim to produce an annual monitoring report. This will examine the effectiveness of the policies of the Plan in achieving its objectives which are expressed, essentially, in the Part 1 general policies. It will also review the various factors affecting policies and planning in the borough. The report may identify the need for Alterations to the Plan and may also be a material consideration in development control.

1.59 It is intended that the future Alterations of the UDP should take place reasonably frequently, when the need arises. This is so that it is kept up-to-date and

Chapter 1 23 London Borough of Hammersmith and Fulham: UDP Alterations

also to avoid the volume of Alterations becoming so great that the process takes too long. The publication of the Mayor’s Spatial Development Strategy or Government policies that result from the Green Paper Planning: Delivering a Fundamental Change are two events that may give rise to an early review of the Plan. Until Alterations can take place or where more detailed guidance is needed, the council may produce additional Supplementary Planning Guidance.

Other council programmes 1.60 Finally, it should be borne in mind that the council operates many services for the benefit of the community. Where there are direct land-use implications these are dealt with in the Plan but, in general, it is not appropriate to include other service strategies because they are not concerned with land-use change and operate on different time-scales from the Plan. There is, however, a consistency of approach and a sharing of key objectives between the Plan and other council strategies, for instance in particular, the annual Interim Transport Plan, the annual Economic Development Plan, which is required by the Local Government and Housing Act (1989) Part 3 and the Housing Investment Strategy and Programme, the Crime and Disorder Strategy, and the Single Regeneration Budget Programmes.

PART 1 GENERAL POLICIES

SUSTAINABLE DEVELOPMENT

POLICY G0: SUSTAINABLE DEVELOPMENT

The council will apply the principles of sustainable development through its planning policies with particular regard to: a) seeking a co-ordinated land use and transportation structure based on the main structural land use elements of the borough b) conserving and enhancing environmental quality and biodiversity, reducing pollution, controlling waste, and promoting energy and resource conservation c) encouraging the use of public transport and energy-efficient transport modes, promoting road traffic restraint and reduction while catering for essential traffic, and seeking to provide a safe, accessible, efficient and integrated transportation network d) ensuring a choice of housing accommodation, including for those on low incomes e) sustaining a wide range of economic activities, subject to satisfactory environmental conditions f) seeking an adequate range of facilities available to all members of the community for shopping, recreation and entertainment, arts, culture, health, education and other purposes

Chapter 1 24 London Borough of Hammersmith and Fulham: UDP Alterations

g) seeking to ensure that large development projects contribute to regeneration and provide clear benefits to the local community

POPULATION, SOCIAL INCLUSION AND EQUALITY OF OPPORTUNITY

POLICY G1: EQUALITY OF OPPORTUNITY SOCIAL INCLUSION AND EQUALITY

1994 Policy G1 replaced by altered text shown below

The land use policies of the Plan will aim to promote social inclusion and to overcome poverty, disadvantage and discrimination. Greater fairness and equality of opportunity for everyone will be promoted while meeting the diverse needs of all sections of the community. In these respects, particular regard will be paid to the availability of (and accessibility to) local facilities, affordable or special housing needs, safety and security, and the quality of the environment.

(For relevant Part 2 policies see Table 2.4 at the end of Chapter2)

LAND-USE AND STRUCTURE

POLICY G2: THE PHYSICAL STRUCTURE AND REGENERATION OF THE BOROUGH

1994 Policy G2 replaced by altered text shown below

The council will seek the physical, social and economic regeneration of the borough having regard to sustaining the mix of uses that characterises much of the borough and the distinctive function and character of particular places and areas. Regeneration strategy will focus primarily on the main structural land use elements of the borough, as follows: a) The designated town centres of Hammersmith, Fulham and Shepherds Bush b) Key Local Shopping Centres, and Other Protected Parades and Clusters of shops outside the town centres. c) The Employment Zones d) Residential areas e) Conservation Areas and archaeological sites. f) Areas important for nature conservation. g) Open spaces that help define the urban structure of the borough.

Chapter 1 25 London Borough of Hammersmith and Fulham: UDP Alterations

h) The River Thames and riverside.

The regeneration strategy will be pursued by:

1. Promoting land use policies to protect and enhance the main structural land use elements of the borough and its mixed use character.

2. Fostering the vitality and viability of identified shopping and employment areas.

3. Welcoming development that will lead to balanced growth in the economic, social and physical wellbeing of the borough as a whole, and resisting those forms of development that will not.

4. Guiding development proposals likely to be major generators of travel demand to locations most accessible by public transport and otherwise seeking to minimise the need to travel, especially by private car.

5. Using planning conditions and negotiating planning obligations to enhance the quality of development and the wider environment, and [to] ensure that it makes a positive contribution to sustainable development, providing social, economic and environmental benefits to the community as a whole

6. Promoting site specific proposals,

7. Pursuing regeneration and neighbourhood renewal programmes in selected areas.

ENVIRONMENT

POLICY G3: ENVIRONMENT

Chapter 1 26 London Borough of Hammersmith and Fulham: UDP Alterations

d) promoting ecological principles, recognising and protecting the natural environment and biodiversity of the borough by protecting, managing, and seeking to enhance nature conservation areas and green corridors linking with other boroughs, and developing new nature conservation areas where possible and securing the protection and enhancement of features of nature conservation interest in connection with development proposals.; EN25-30, EN40, Sites 22,36,84 e) making the environment safer and more accessible for all; EN10-12, EN20-21,TN7,TN10,TN11,TN16,S1 f) seeking a reduction in pollution and waste, including carbon dioxide emissions and other pollution from road traffic and other forms of transport. It will seek to ensure that the collection and disposal of waste is carried out so as to minimise the traffic and environmental impact, both within the borough and elsewhere; EN20-21, S1 g) promoting energy and resource conservation, by recycling and measures to increase energy efficiency; EN16-17, S1 h) ensuring, whilst taking account of the strategic requirements of telecommunications networks, that the development of telecommunication facilities respects the physical character of the borough and minimises visual impact. EN41

TRANSPORTATION AND ACCESSIBILITY

POLICY G4: TRANSPORTATION AND ACCESSIBILITY

1994 Policy G4 replaced by altered text shown below

1. Development will be guided to locations that minimise the need to travel, and will be required to incorporate access arrangements that encourage the use of sustainable modes of travel and transport.

2. The intensity of development will be related to accessibility by public transport, with new development expected to include measures designed to promote traffic restraint and reduction, so as to reduce congestion and air pollution and to avoid the need for increased road capacity.

3. Land use provision for improvements to the road network will only be made where necessary in the interests of traffic safety or maintaining the free flow of essential traffic

4. The siting, design and layout of development will be required to provide:

Chapter 1 27 London Borough of Hammersmith and Fulham: UDP Alterations

• Easy access by people with a disability • Safe, secure and direct access by pedestrians • Facilities to encourage travel to and from the development by cycling and other sustainable modes of travel and transport.

5. Measures will also be sought, in connection with development proposals, to:

• Secure necessary improvements to, and development of, public transport systems and services, including additional stations on the west London line, • Ensure that road safety is not compromised and that the free flow of essential traffic is maintained. • Minimise vehicle parking demand both by controlling the amount of on- site parking provision and by securing the introduction of complementary parking controls and traffic management measures to control off-site parking. • Promote the use of rail and water for freight transport. • Protect residential areas and main shopping streets from the environmental impact of traffic generated by development proposals.

HOUSING

POLICY G5: HOUSING

1994 Policy G5 replaced by altered text shown below

The quantity of the borough’s housing stock will be increased and its quality improved, ensuring a choice of accommodation, including for those on low incomes or with special housing requirements, by: a) Requiring the retention of existing housing, making provision to meet the strategic dwelling requirement for completion of at least 4950 dwellings between 1992 and 2006, and aiming to provide for the completion of some 1900 additional dwellings within the period to 2016. b) Requiring that new dwelling provision has regard to identified local needs in terms of size, type and affordability. c) Welcoming proposals for improvement of the existing housing stock, and by protecting and enhancing the environmental quality of, and community facilities in, residential areas.

EMPLOYMENT

POLICY G6: EMPLOYMENT

Chapter 1 28 London Borough of Hammersmith and Fulham: UDP Alterations

The council will seek to sustain a wide range of economic activities in the borough, subject to satisfactory environmental conditions, and to ensure that all borough residents have access to an adequate supply and variety of local jobs.

In particular, this will be achieved by: a) retaining in employment use land which currently provides employment provided that this is environmentally acceptable; E1, E2, E3, TC5 b)c) defining employment zones for particular use by B class activities and one zone (Hythe Road) specifically for B2-B8 uses; having regard, in particular, to their accessibility by public transport.and promoting development on the old Oak common Sidings Site, primarily for employment purposes, in the context of physical, social and economic regeneration in this borough and the non-statutory Park Royal Regeneration Area; E1, Site 40, 84, A, B c)b) encouraging larger B1 developments to locate in areas of higher public transport accessibility, in particular where such areas are in the town centres, and discouraging it elsewhere, especially in predominantly residential areas; guiding employment developments that are major generators of travel and transport demand to town centres and otherwise to locations of high public transport accessibility] E2, TC5, TN2, S1 d) requiring large B1 proposals on appropriate sites in town centres to be part of mixed use schemes that retain and provide other facilities that are appropriate to the scale, nature and location of the scheme and contribute to the viability and vitality of the town centre, whilst preserving and enhancing the character of the area; E2, Sites 27, 63a, 75, G e) seeking to ensure where appropriate that new B1 developments outside town centres includes accommodation capable for occupation by small firms; the availability of a range of business accommodation, including that suitable for small business; E5 f) seeking to ensure that, where appropriate, new developments generating employment provide facilities for training and childcare which directly benefits local people; E6, E7 , Sites (in particular) 27, 36, 78 g) improving the quality and accessibility of employment areas through regeneration initiatives and other environmental and transport measures; E8, E9 h) promoting hotels and other facilities for visitors to the borough especially in town centres subject, in particular, to a satisfactory environmental impact, and no loss of housing and to achieving local economic and social benefits;

Chapter 1 29 London Borough of Hammersmith and Fulham: UDP Alterations

E10, E11

COMMUNITY SERVICES

POLICY G7: COMMUNITY SERVICES IN TOWN CENTRES AND ELSEWHERE: OUTSIDE TOWN CENTRES

The council will seek an adequate range of convenient and environmentally sustainable facilities available to all sections of the community for shopping, recreation and entertainment, the arts, culture, health, education and other purposes. SH1, SH4, SH7, SH10, SH11, SH12, CS1, CS2, CS2A

In particular, this will be achieved by: a) designating Hammersmith, Fulham and Shepherd's Bush as town centres in accordance with Part 1 Policy G2 and seeking to sustain a wide range of shopping and service provision, entertainment and other appropriate facilities within them; E2, SH2, SH6, SH8, TC2, TC 4, TC5, Sites 27, 36, 75, 79, C, D, E, F, b) resisting entertainment and leisure uses that are likely to be major generators of transport demand, and which are not supported by evidence of demonstrable need and a sequential approach to site selection, [and] that are not accessible by a variety of means of transport, or are likely to have a serious adverse effect on the vitality and viability of the town centres. b) resisting large shopping schemes outside the three town centres that are not accessible by a variety of means of transport or are likely to have a serious adverse effect on the vitality and viability of those centres; SH7, SH9 c) seeking to retain and improve shopping for everyday needs in key local shopping centres SH3 d) seeking the provision of facilities for education, health, recreation, entertainment, the arts and culture in locations that are accessible to the people who will use them; CS1-12, Sites 19, 27, 34, 36, 54, 55, 72, 75, 76, 79, 84, C, D, E, F e) seeking to ensure that large new developments contribute to the provision of community service uses appropriate to the scale, nature and location of the scheme, . CS11, SH10, Sites 27, 32, 36, 72, 78, 84.

G7A: SHOPPING OUTSIDE TOWN CENTRES

An adequate range of convenient and environmentally sustainable shopping facilities available to all sections of the community will be sought.

Chapter 1 30 London Borough of Hammersmith and Fulham: UDP Alterations

In particular, this will be achieved by: a) resisting shopping facilities that are likely to be major generators of transport demand, and which are not supported by evidence of demonstrable need and a sequential approach to site selection, and that are not accessible by a variety of means of transport, or are likely to have a serious adverse effect on the vitality and viability of the town centres, and b) seeking to retain and improve shopping for everyday needs in key local shopping centres and other locations

THE THAMES

POLICY G8: THE RIVER THAMES AND THAMES POLICY AREA

The council will seek to protect and enhance the character, use, and ecology and archaeology of the River Thames and the riverside by: a) designating the river and riverside as an Area of Special Character; EN31, EN38 b) seeking increased public access to the riverside by continuing to implement a continuous riverwalk, as part of the Thames Path National Trail, and by requiring access to it through development schemes; EN33, EN34 Sites 8,19,32,71,76 c) encouraging increased use of the river, for transport and recreation, provided that this is not detrimental to its ecology and environmental character and does not cause unacceptable pollution; and encouraging continued use of wharves and improved access where appropriate to the foreshore; EN32, EN35, EN36, EN37, TN31 d) requiring all riverside developments to respect the environment and enhance the special character of the river and riverside while maintaining the integrity of the Thames flood defences. EN7, EN31, EN33, EN34, EN38, EN39, Sites 8,19,32,71,76, 22A

SITE PROPOSALS

POLICY G9: LARGE DEVELOPMENT SITES

1994 Policy G9 replaced by altered text shown below

POLICY G9: IMPLEMENTATION

Chapter 1 31 London Borough of Hammersmith and Fulham: UDP Alterations

will be implemented through the promotion of site specific development proposals. These site proposals, as well as proposals for other sites that come forward during the life of the plan will be expected to realise qualitative gains for the local community in pursuance of the economic and social objectives of the UDP by:

• Advancing the physical social and economic regeneration of the borough, focusing on the town centres of Hammersmith, Fulham and Shepherd’s Bush , and other areas of significant change • Ensuring that specific and identified imperatives can be met in terms of the provision of affordable housing, jobs and services. • Meeting the known site specific requirements of individual service providers • Addressing complex or difficult sites where a range of policy issues need to be sensitively balanced.

POLICY G9A: TOWN CENTRES

The council will seek to regenerate the town centres of Hammersmith, Fulham and Shepherd’s Bush by enhancing their vitality and viability as places for a wide range of shopping, services, entertainment and other facilities, together with employment and residential uses. A high quality environment will be sought for town centre residents workers and visitors alike, and the pedestrian environment will be protected and enhanced in combination with measures to minimise the impact of vehicle traffic and improvements to public transport accessibility and accessibility by other alternatives to private car use.

Chapter 1 32 London Borough of Hammersmith and Fulham: UDP Alterations

CHAPTER 01A: SUSTAINABLE DEVELOPMENT

RESTATEMENT OF PART 1 POLICY: SUSTAINABLE DEVELOPMENT 34

JUSTIFICATION FOR PART 1 POLICY 34

INTRODUCTION 34

ISSUES 35 Social progress which recognises the needs of everyone 35 Effective protection of the environment; 35 Prudent use of natural resources 36 Maintenance of high and stable levels of economic growth and employment 36

POLICY CONTEXT 36 International 36 Europe 37 National 37 London 38

STRATEGY 38

This is a proposed new chapter to emphasise the importance of sustainable development in the UDP. Some of the text has been moved from Chapter 4 of the existing UDP.

Chapter 1A 33 London Borough of Hammersmith and Fulham: UDP Alterations

Chapter 1A 34 London Borough of Hammersmith and Fulham: UDP Alterations

CHAPTER 01A. SUSTAINABLE DEVELOPMENT

RESTATEMENT OF PART 1 POLICY: SUSTAINABLE DEVELOPMENT

JUSTIFICATION FOR PART 1 POLICY

INTRODUCTION

1A.1 A well known definition of sustainable development (in the Bruntland report “Our Common Future” 1987) is “development which meets the needs of the present without compromising the ability of future generations to meet their own needs”. More recently the Government (“A better quality of life” - a strategy for sustainable development for the UK 1999) has defined the key aim as “ensuring a better quality of life for everyone, now and for generations to come” and it has outlined four broad objectives:

• Social progress which recognises the needs of everyone; • Effective protection of the environment; • Prudent use of natural resources; and • Maintenance of high and stable levels of economic growth and employment.

Chapter 1A 34 London Borough of Hammersmith and Fulham: UDP Alterations

1A.2 These objectives illustrate clearly that sustainability encompasses a wide range of human needs as well as a clean and safe environment. Therefore, aiming to achieve sustainable development can be seen as an over-arching objective for the UDP which has implications throughout the plan. The Government, in Planning Policy Guidance Note 12, states that “The planning system, and development plans in particular, can make a major contribution to the achievement of the Government’s objectives for sustainable development.”

ISSUES

1A.3 The sustainability issues that the UDP should address can be considered in relation to the Government’s four objectives, as stated above.

Social progress which recognises the needs of everyone 1A.4 Planning policies have an important part to play in helping the whole community to meet its social and economic needs while aiming to ensure that people are not socially excluded because of a lack of adequate housing, limited job opportunities, poor access to local facilities or a poor environment. The UDP can address these issues in the way in which it allocates land for different purposes, seeks to protect and encourage local facilities, and promotes integration of land-use and transportation. In addition, it sets principles by which new development must be considered with a view to ensuring it does contribute to the long term sustainable regeneration of the borough and improvement of the environment.

Effective protection of the environment; 1A.5 4.1 Environmental quality has always been a key objective of town planning. Traditionally there has been concern, primarily, with conserving and enhancing the appearance of an area, the effect of development on residents' quality of life and the intrusion of non-conforming uses. Now, however, there is in northern Europe a general anxiety about the unwelcome side-effects of affluence and modern technology on our environment. The environment is now a political issue on a world- wide scale. In recent years concerns for the environment have become broader including issues of biodiversity, pollution, waste and energy and resource conservation and are now considered as one element of the achievement of sustainable development. The UDP environmental policies are part of this wider context. Three main levels of concern can be recognised, and these form the background to the UDP policies:

• Global issues such as the greenhouse effect, depletion of the ozone layer, destruction of wildlife habitats, the importance of bio-diversity, the protection of our environmental capital as well as financial capital and environmental deterioration through unsustainable use of resources. • European and national problems such as air and water quality, acid rain and other forms of pollution, and the implications of the precautionary principle, and the polluter pays principle in making decisions involving our environment. • Local problems such as urban dereliction, excessive levels of traffic, noise and poor visual quality.

1A.6 In this borough most general noise and air pollution arises from transportation. The principle way in which planning can address these problems is

Chapter 1A 35 London Borough of Hammersmith and Fulham: UDP Alterations

through policies that reduce the need for travel and encourage the use of travel methods that provide an alternative to the private car. Therefore, the availability of accessible local facilities and jobs is important, particularly at places that are well served by public transport and cycle routes. The plan also needs to recognise the impact of some activities at a local level, where residents’ quality of life could be adversely affected by noise, pollution or other nuisances.

1A.7 The River Thames is an important part of the environment in various ways: as an open space, as part of the townscape in its own right and as a setting for development, for recreation, for its ecology and contribution to bio-diversity, for transportation and for drainage and water supply. Planning policies must recognise the river’s value to the Borough and to London as a whole. They also need to seek to provide a basis for resolving any conflicts that arise between potentially conflicting uses. In the past, a balance was not achieved in London and the Thames was badly polluted. That problem has been redressed and the challenge for the future is to maintain the river as a sustainable resource.

Prudent use of natural resources 1A.8 One of the main ways of using natural resources wisely is to ensure the re- use of existing unused and underused developed land and premises in preference to green field sites. However, in this borough, all land, with the exception of public and private open space which is subject to protection policies, is previously developed or brown field land and so there is no issue about not using previously developed land. Nonetheless, the UDP can address the issue, of prudent use of natural resources in other ways, such as through its contribution to providing an integrated land-use and transportation strategy which will reduce the need to travel and help conserve fuel. Encouragement of energy efficient buildings and the use of renewable energy will also help. In addition, planning policies are an important part of the strategy for dealing with waste through allocation of land and design. Greater re-use and recycling of materials will help conserve natural resources by requiring less to be used and reducing the need for land to be taken for landfill.

Maintenance of high and stable levels of economic growth and employment 1A.9 The UDP is a key to the protection and encouragement of employment generating activity through land allocation policies. It needs to consider the benefits of employment growth against the environmental implications and the need for land for other purposes. At the same time the opportunities created locally should be accessible to local people which means looking at not only physical access but the ability of people to obtain the necessary skills, abilities and other support (e.g. childcare) to compete for jobs.

POLICY CONTEXT

International 1A.10 4.25 In June 1992, the United Nations Conference on Environment and Development (UNCED - "The Earth Summit") took place in Rio de Janeiro, where the achievement of sustainable development was the central theme. A key outcome was the general endorsement of Agenda 21, a global action plan for reconciling development, in a wide sense, and environmental concerns. Agenda 21 calls on governments to prepare national strategies for sustainable development and identifies local government as having a very important role to play. In 1992 at the “Earth Summit” in Rio de Janeiro, a plan of action, known as “Agenda 21” was

Chapter 1A 36 London Borough of Hammersmith and Fulham: UDP Alterations

agreed. It recommended that all countries should produce national sustainable development strategies. Local Authorities have a key role to play in Agenda 21. Over two-thirds of the actions set out in Agenda 21 involve local government. The Prime Minister has set a target for all local communities to have a “Local Agenda 21” strategy in their area by 2000. The Framework Convention on Climate Change, signed at UNCED, will commit the UK and over 150 countries to return emissions of individual greenhouse gases to their 1990 level by the year 2000. The Kyoto Protocol, agreed in December 1998, showed that there is global commitment to tackling the problem of climate change. All developed countries have signed up to legally binding targets to reduce their emissions of the greenhouse gases which are causing climate change. The UK agreed to reduce emissions to 12.5% below 1990 levels over the period 2008-2012.

Europe 1A.11 4.26 The European Union has approved a adopted in 1992 the Fifth Action Programme on the Environment ("Towards Sustainability"). The Programme sought to integrate environmental concerns into other policy areas in order to achieve sustainable development. Changes to the Treaty of Rome, agreed in the Treaty of Amsterdam, give sustainable development much greater prominence in Europe, by making it a requirement for environmental protection concerns to be integrated into EU policies. It sets out a framework for action by the public sector, the private sector and the EU with targets up to the end of the century. In some respects, the EU have given, or will give, legal force to targets by adopting new Directives or Regulations. Otherwise, national governments would be expected to bring forward legislation, or action should be taken by agencies, such as local government, within the ambit of their existing duties and responsibilities. EU member states made a commitment in June 1992 at Lisbon to produce national action plans for the implementation of Agenda 21 by the end of 1993.

National 1A.12 The UK produced its first sustainable development strategy in 1994 and this was replaced by a new strategy in May 1999. The current strategy’s objectives are noted in the introduction to this section. It sets seven priorities for the future:

• more investment in people and equipment for a competitive economy; • promoting a transport system which provides choice, and also minimises environmental harm and reduces congestion; • improving the larger towns and cities to make them better places to live and work; • directing development and promoting agricultural practices to protect and enhance the countryside and wildlife; • improving energy efficiency and tackling waste; • working with others to achieve sustainable development internationally.

1A.13 4.28 Planning Policy Guidance Note 12 Development Plans and Regional Planning Guidance recognises that the planning system has an important role in achieving sustainable development: "The planning system and the preparation of development plans in particular, can make a major contribution to the achievement of the Government’s objectives of ensuring that for sustainable development” and growth are sustainable. The sum

Chapter 1A 37 London Borough of Hammersmith and Fulham: UDP Alterations

total of decisions in the planning field, as elsewhere, should not deny future generations the best of today's environment. This should be expressed through the policies adopted in development planning." (PPG12 para. 1.8 4.1)

PPG12 also states that:

“In all cases, it is necessary to consider the interaction of policies within the plan, so that, for example, the environmental and social implications of policies designed to encourage economic growth are fully considered”. "the challenge is to ensure that newer environmental concerns, such as global warming and the consumption of non-renewable resources, are also reflected in the analysis of policies that forms part of plan preparation". (PPG12 para. 6.3)

1A.14 Advice from the DETR in January 1998 in “Sustainable Local Communities for the 21st Century: Why and How to Prepare a Local Agenda 21 Strategy” states that

"Development plans should seek to create a more sustainable pattern of development in line with the Government's sustainable development strategy, and its policy planning guidance notes (PPGs). The Government ....will advise planning officers.....to integrate the process of plan-making with Local Agenda 21 initiatives wherever possible"

London 1A.15 The Government's Strategic Guidance for London Planning Authorities (RPG3) states (paragraph 1.30) that “Future planning activity must incorporate measures to contribute to a more sustainable future”. It notes that (paragraph 1.31) “The Land-use planning system is a key instrument in ensuring that development is compatible with the aims of sustainable development” and requires UDPs to “demonstrate how planning policies have been framed having regard to these aims. Councils should “explain how their activities encourage the maximum use of existing resources, particularly when these can foster and maintain activity, whilst reducing the need to travel, particularly by car. Borough planning activity should aim to reduce energy inputs, take account of the need to contribute to reducing emissions of greenhouse gases and air pollution, increase the recycling and reuse of wastes, and minimise the need for waste disposal, especially over long distances.”

STRATEGY

Working towards sustainable development is a key theme of the Unitary Development Plan. The policies and proposals in the Plan reflect the council’s overall strategy to improve the social, economic and environmental well being of the borough. The strategy will set out to achieve sustainability through co-ordinated land use and transportation policies that meet the needs of present residents and visitors to the borough without compromising the ability of future generations to meet their own needs. The strategy will be implemented through policies such as:

• transport policies, such as encouraging public transport and reducing the use of the private car • employment policies, such as keeping an adequate supply of local jobs • shopping and community service policies, such as seeking to retain local shops and services, as well as town centre facilities

Chapter 1A 38 London Borough of Hammersmith and Fulham: UDP Alterations

• environment policies, such as the conservation of the built and open environment, waste management, resource and energy conservation • housing policies, such as meeting the overwhelming need for affordable housing.

Chapter 1A 39 London Borough of Hammersmith and Fulham: UDP Alterations

CHAPTER 2. POPULATION, SOCIAL INCLUSION AND EQUALITY OF OPPORTUNITY

RESTATEMENT OF PART 1 POLICY G1 : EQUALITY OF OPPORTUNITY SOCIAL INCLUSION AND EQUALITY 43

JUSTIFICATION FOR PART 1 POLICY G1: 43

INTRODUCTION 43

POPULATION ISSUES 44 Historic population decline and recent recovery 44 Age structure 44 Ethnic breakdown 45

SOCIAL INCLUSION AND EQUALITY OF OPPORTUNITY ISSUES 46 Introduction 46 Black and minority ethnic groups 47 Women 48 People with disabilities 48 Other groups 48

POLICY CONTEXT 49 National policy 49 Race Relations Act 1976 49 Chronically Sick and Disabled Persons Act 1970 50 Disability Discrimination Act 1995 50 Sex Discrimination Act 1975 50 Regional policy 50 Strategic/London-wide policy 51 Local policy 51

STRATEGY 52

NB Pages 54 – 57 will be taken up by Table 2.4 showing key issues affecting disadvantaged and discriminated groups.

Chapter 2 41 London Borough of Hammersmith and Fulham: UDP Alterations

Chapter 2 42 London Borough of Hammersmith and Fulham: UDP Alterations

CHAPTER 2. POPULATION, SOCIAL INCLUSION AND EQUALITY OF OPPORTUNITY

RESTATEMENT OF PART 1 POLICY G1 : EQUALITY OF OPPORTUNITY SOCIAL INCLUSION AND EQUALITY

1994 Policy G1 replaced by altered text shown below

The land use policies of the plan will aim to promote social inclusion and to overcome poverty, disadvantage and discrimination. Greater fairness and equality of opportunity for everyone will be promoted while meeting the diverse needs of all sections of the community. In these respects, particular regard will be paid to the availability of (and accessibility to local facilities, affordable or special housing needs, safety and security, and the quality of the environment.

JUSTIFICATION FOR PART 1 POLICY G1:

INTRODUCTION

2.1 Hammersmith and Fulham is one of the most polarised boroughs in the country and is characterised by extremes of wealth and deprivation. The council is committed in its service delivery to pursue a policy of equality of opportunity for all people and to improve the quality of life for the borough’s most deprived communities. The council recognises that this will require a comprehensive, integrated and multi-disciplinary approach to address the principal problems of social exclusion and long-term unemployment. It has identified tackling social exclusion as one of its three corporate priorities. Within this context it recognises that planning can affect the quality of life for everyone living in the borough and, in addition, everyone working in, visiting and passing through the borough. It is therefore concerned that, both in dealing with planning applications and in its wider role as plan-making authority, it particularly recognises the needs of the borough's multi- cultural community most deprived communities. This commitment is supported by the Government's Planning Policy Guidance Note 12 on Development Plans and Regional Planning Guidance (see Policy Context paragraph 2.16) and by various pieces of legislation such as the Race Relations Act 1976 and the Chronically Sick and Disabled Persons Act 1970 (see Policy Context paras 2.18-2.20).

2.2 An understanding of the composition of the population and of population trends, including changes in household size and formation, together with knowledge of population needs is necessary if planning is to be successful in improving the quality of life of the most disadvantaged and disaffected and in providing adequate facilities for the future, for example adequate housing provision and levels of schooling. It is also necessary if this provision is to be undertaken in the context of equality of opportunity. If development plans do not recognise the particular requirements and issues concerning different groups there is the potential for indirect discrimination against certain sectors of the population, such as black and minority ethnic groups, women and people with disabilities.

Chapter 2 43 London Borough of Hammersmith and Fulham: UDP Alterations

POPULATION ISSUES

Historic population decline and recent recovery 2.3 The demographic changes experienced by the borough have been and continue to be connected with those of London as a whole and with Inner London in particular, and are influenced by the labour and housing markets of the capital and by national demographic trends. Although the population of Greater London did not show signs of decline until around 1940, the population of inner London reached its peak at the turn of the century. It has been in decline ever since through the process of out-migration and despite relatively high rates of natural increase.

2.4 The recent demographic history of Hammersmith and Fulham is similar to that of other inner London boroughs. The population fell continually between the 1921 and 1991 Censuses, but since 1981 the total figure has been fairly stable. The 1981 Mid-Year Estimate (OPCS) based on the 1981 Census, was 151,300. The 1991 1998 Mid-Year Estimate was 157,500 156,200, based on the 1991 Census. It certainly seems to be the case that population decline has halted, and the latest population projections suggest very little change a small increase in the population of the borough up to and beyond 2001, with the possibility of some slight increase after that (see Table 2.1).

Table 2.1: Hammersmith and Fulham Population Projections (1991-20011981- 2016) 1981 1991 2001 151,300 156,200 156, 800 158,400 Mid-year Estimates and London Research Centre 1998 Round of Projections (Projection 1)

1981 1991 2001 2006 2011 2016 151,300 156,200 157,400 160,100 161,200 163,900 LRC 1999 Round of Demographic Projections (Projection 1)

2.5 The drastic population loss during the twentieth century has been accompanied by changes in the composition of the population, particularly its age structure and ethnic composition, as a result of high levels of migration, and to a lesser extent to changing birth and death rates. There have also been changes in the size of households and the rate of household formation and it is estimated there will be an increase of approximately 1760 3500 households (2 4%) in the borough between 1991 and 2001, to reach a total of (1991-based LRC interim Projections 75,800 (2000 Round of Demographic Projections from the GLA Household Projection 1b). The projection for 2016 is 80,500 households. Age structure 2.6 Examination of the age structure of the borough's population shows that it is generally similar to that of other inner London boroughs. It has experienced significant changes during the 1980's, with recent increases in birth rates contributing to an increase of about a quarter in the 0-4 age group between 1981 and 1991. There have been increases also in numbers of 15-29s and 30-44s, but decreases in those aged 5-14 and 45 or over. The number of people of 75 or over has remained fairly stable.

2.7 Age structure projections by the London Research Centre, the latest of which were carried out before the full data from the 1991 Census became available,

Chapter 2 44 London Borough of Hammersmith and Fulham: UDP Alterations

indicate that between 1991 and 2001 2011 there will be further changes in the numbers of the population in different age groups. The numbers of 0-4 year olds in Hammersmith and Fulham are projected to rise slightly in contrast to the greater rise between 1981 and 1991, whereas those in the 5-14 age group will increase to a greater extent stabilise beyond 2001 after an increase in the 1991-2001 period. The same applies to those in the 5-14 age group. In respect of the older age groups an increase is expected in the number of people aged between 30 and 64 but a decrease is projected for those aged 65 and over beyond 2001 in the 15-29 age group and continued increase in the 45-64 age group, but continued declines in people of pensionable age.

Table 2.2: The changing age structure of Hammersmith and Fulham, 1991 20116. Age group 1991 2001 2011 2016 % change % change (000s) (000s) (000s) (000s) 1991-2001 2001-20116 0-4 9.4 10.3 10.2 10.4 +9.6 +1.0 5-14 13.5 18.4 18.6 18.7 +36.3 +1.6 15-29 50.2 41.6 44.4 46.0 -17.1 +10.6 30-44 35.9 43.0 40.5 40.5 +19.8 -5.8 45-64 27.4 28.7 33.3 33.7 +4.7 +17.4 65-74 10.4 8.1 8.1 8.7 -22.1 +7.4 75+ 9.4 7.3 5.9 5.9 -22.3 -19.2 All 156.2 157.4 161.0 163.9 +0.8 +4.1 Source OPCS Mid-Year Estimates and London Research Centre 1998 Round of Demographic Projections (Projection 1). LRC 1999 Round of Demographic Projections (Projection 1) Table replaces existing Table 2.2.

Ethnic breakdown 2.8 Information is available from the 1991 Census on the ethnic composition of the borough's population and up to date figures are provided in London Research Centre Projections. Just under one fifth (18%) of the population were of ethnic origins other than white. Within this group, the largest sub-group is of those people who are black: Black Caribbeans (6% of the population), Black African (3%) and Black "Other" including Black British (2%).The Irish population is measured in a different way in the Census by birth place. The proportion of people in the population in a household whose head was born in Northern Ireland or the Republic was 9%.

2.9 Population projections being developed by from the London Research Centre indicate that the proportion of the population in the borough in black and other ethnic groups other than white is expected to continue to increase very marginally between 1991 and 2001 2011. In addition, the latest round of ethnic group projections show an increase in the proportion of ethnic minorities due to asylum seekers.

Table 2.3: Ethnic Groups, 1999.

Ethnic LBH&F % Inner Groups (000s) London % White 125.8 80 70 Black: Caribbean 8.8 6 7 Black: African 4.6 3 6

Chapter 2 45 London Borough of Hammersmith and Fulham: UDP Alterations

Black: Other 3.6 2 3 Indian 2.6 2 3 Pakistani 1.4 1 1 Bangla Desh 1.0 1 4 Chinese 1.4 1 1 Other Asian 2.7 2 2 Other 5.9 4 3 Total 157.7 100 100 Source London Research Centre 1998 Round of Ethnic Group Projections. NB: Irish population is measured on a birth place basis. In 1991 there were 12,700 Irish,(9% of the population, compared to 6% for Inner London.) Percentages may not add up to 100 due to rounding. Table replaces existing Table 2.3.

SOCIAL INCLUSION AND EQUALITY OF OPPORTUNITY ISSUES Introduction 2.10a Hammersmith & Fulham is a pleasant place to live and work for many people. However, like many other London boroughs it also exhibits problems of unemployment, low incomes, crime, poor quality housing, poor health, family breakdown, discrimination and poor access to services. These problems are all interlinked and results in further problems of social exclusion and inequalities within the borough. This situation has led to Hammersmith and Fulham being ranked as the 18th poorest borough in England in the DETR’s Index of Local Deprivation.

2.10b Almost half of households within the borough have an income excluding benefits of under £10,000 per annum, while over one in ten have an income of over £50,000. These inequalities are concentrated in certain areas of the borough and affect certain groups, for example, the average income of black households is only one third of that earned by white non-Irish households and incomes of those in the south of the borough are 60% higher than those in the north.

2.10c Unemployment in the borough has fallen in recent years, but levels are still 50% higher than the national average. Again, this is not evenly spread throughout the borough with nearly one in four of those unemployed living in just two of the borough’s twenty three wards. There are also disparities in the skills gap between the borough’s unemployed, with educational and skills achievements falling considerably below London and national averages, and those in employment being some of the most highly qualified in the country. These stark differences are mirrored in the intake and educational performance of schools within the borough.

2.10d Although the borough has some of the highest house prices and rents in London, the borough also has the highest proportion of private sector stock deemed unfit. A large number of older people are concentrated in such accommodation, with four times the national average living in private rented accommodation. The proportion of older people living without basic amenities is over twice that of the national average.

Chapter 2 46 London Borough of Hammersmith and Fulham: UDP Alterations

2.10e Crime in the borough is concentrated in areas affected by poverty and deprivation. In addition, it is also more likely to affect certain groups within the community. For example, those in the Asian community are nearly six times as likely to be a victim of crime as white people.

2.10f Those that live in poverty die younger. The standard mortality ratio in the borough for those aged under 65 is the worst in London and the average life expectancy of borough residents is the fourth worst in London. Again this is reflected spatially with the rate of excess deaths for men aged between 15-44 being the third worst nationally and being found in the north of the borough

2.10g Central Government has set an agenda with a commitment to tackle social exclusion; the new Social Exclusion Unit, the Welfare to Work Strategy, the Health Improvement Programme, the commitment to education, the promotion of local regeneration and programmes to tackle crime, homelessness and environmental degradation. This wide ranging programme creates the backdrop for the council to create greater social cohesion and equality in its local communities.

2.10 Increasingly there is awareness that not everyone who lives and/or works in the Borough has had equal access to the opportunities it has offered in the past or has equal access to the opportunities it continues to offer. The council's equal opportunities policy also recognises this situation and states that discrimination is endemic and systematic within our society. This may be direct discrimination or more often, as with the case of land use planning, indirect discrimination whereby decisions have unintentional effects on particular groups in the population and make life difficult, disagreeable or oppressive.

2.11 In looking at equality of opportunity issues there are many different groups within the community that need to be considered. Some of these are described below, and are looked at in more detail in individual topic chapters, but there are many others who may be discriminated against and who suffer harassment or constraints on their lives which are not properly appreciated by society as a whole, and who will be adversely affected if their needs are not met by planning policies and proposals. Examples of such groups, including the elderly, the unemployed, homeless people, young people and children, the chronic sick, single parents, gay men and lesbians are shown in Table 2.4. Some of these have needs and concerns which apply to only themselves, whereas others have needs which whilst also applying to other sections of the community do so to a lesser extent. The discrimination and deprivation may of course be multiplied if a person falls into two or more of the above groups.

Black and minority ethnic groups 2.12 Black and minority ethnic groups face particular inequalities as a result of direct and indirect discrimination. In Hammersmith and Fulham the largest minority ethnic group consists of people from the Irish Republic, followed closely by those from the Caribbean. Care must be taken not to over generalise, but it is clear that since the age structure of minority ethnic groups (apart from the Irish) is presently younger than the borough average and the birth rates are correspondingly higher, minority ethnic groups are likely to constitute an increasing proportion of the total population during the 1990's (see para. 2.9). In addition, the socio-economic status of black households is often lower than that of the general population, and black households of Caribbean origin tend to be council or housing association tenants. These characteristics manifest themselves in a variety of needs which, although to

Chapter 2 47 London Borough of Hammersmith and Fulham: UDP Alterations

some extent are representative of the needs of many of the borough's residents, disproportionately affect black and minority ethnic groups. They include the need for improved provision of creche facilities and day nurseries, recreation, entertainment and shopping facilities, training provision for the unemployed and low skilled, affordable housing, meeting places for community and religious needs and better public transport. In addition, because of fear of racial harassment, there is a need to take account of design in the environment to ensure that it is as safe and secure as possible.

Women 2.13 Women form the majority of the borough's population (52.0 4%, from the 1992 1998 Mid-year estimates), but when it comes to the distribution of wealth or access to resources and opportunities, for example recreation, entertainment and community facilities, many are at considerable disadvantage compared with men. They can encounter discrimination and more than men, tend to be in low-paid employment, have more difficulty gaining access to satisfactory housing, and be heavily dependent on public transport and walking, with their mobility limited by caring responsibilities and/or fear for their personal safety through violent or sexual attack or harassment. They bear the major responsibility for the care of dependants, children, sick and elderly people and those with disabilities. This is largely unpaid and means that women who are carers are often on low incomes and socially isolated. Because of their caring responsibilities, limited mobility and stereotyping in society, many women spend most of their time in their home environment, but have little opportunity to express their needs or to influence or shape the urban environment or the facilities within it.

People with disabilities 2.14 Disability whether it be physical, sensory, psychiatric or concerned with learning difficulties is far more widespread than may be realised, and surveys by OPCS and LRC suggest that the incidence of disability affects 14-16% of households. A survey carried out in Hammersmith and Fulham in 1991 by the council shows that 27% of households contain at least one person with a disability or long-term illness; and an estimated 15.2% of the resident population have a disability or long-term illness. People with disabilities, whether adults or children, are often prevented from leading the full independent lives of which they are capable by the physical environment, much of which remains inaccessible and unsuited to their needs. These needs include access to a satisfactory network of libraries and schools and other facilities concerned with education, entertainment and recreation, public buildings such as shops, banks and post offices; housing suitable for wheelchair users and other people with mobility difficulties; public transport fully accessible and suitable for all people; design of the environment to avoid creating unnecessary obstacles and to positively improve the environment for people with mobility and visual disabilities; and training for new and better jobs to assist not only the unemployed amongst this group but also those who wish to find alternative jobs.

Other groups 2.15 Groups other than black and minority ethnic groups, women and people with disabilities which face discrimination were referred to in paragraph 2.11 and are included in Table 2.4. The problems facing these groups are often similar to the aforementioned groups, for example the elderly increasingly need good access to health and social service facilities, unemployed people need provision of training, young children need access to gardens and play space, the chronic sick need

Chapter 2 48 London Borough of Hammersmith and Fulham: UDP Alterations

special housing, single parents need provision of childcare facilities, the homeless require decent affordable accommodation and gay men and lesbians face harassment and often need hostels for living accommodation and centres for support.

POLICY CONTEXT

National policy 2.16 The acknowledgement of the relationship between planning and social needs of different groups is acknowledged in the Government's White Paper "This Common Inheritance" which states that:

"the task of government is to set a framework of rules and incentives, so that patterns of land use reflect the interests of the community as a whole".

This relationship is developed in PPG12 Development Plans and Regional Planning Guidance which states that:

"Regulations also require planning authorities to have regard to social considerations in preparing their general policies and proposals in structure plans and UDP Part 1s. But, in preparing detailed plans too, authorities will wish to consider the relationship of planning policies and proposals to social needs and problems, including their likely impact on different groups in the population, such as ethnic minorities, religious groups, elderly and disabled people, single-parent families, students and disadvantaged and deprived people in inner urban areas “local authorities, in preparing development plans, should consider the relationship of planning policies and proposals to social needs, including their likely impact on different groups in the population, such as ethnic minorities, religious groups, elderly and disabled people, women, single parent families, students, and disadvantaged people living in deprived areas. They should consider the extent to which they can address issues of social exclusion through land use planning policies”.

2.17 In PPG1 General Policy and Principles, the Guidance states that:

"The town and country planning system is designed to regulate the development and use of land in the public interest ...... (and that) ...... the development of land and buildings provides the opportunity to secure a more accessible environment for everyone, including elderly people, people with toddlers or infants in push chairs, wheelchair users and other people with disabilities".

More recently PPG13 Transport has been issued by the Government. This states that:

"Local plans should seek to revitalise traditional urban centres, improve their attractiveness as places to live, work and shop ..."

Race Relations Act 1976 2.18 Section 71 of The Race Relations Act 1976 imposes a duty on every local authority:

"to make appropriate arrangements with a view to securing that their various functions are carried out with due regard to the need to eliminate unlawful racial

Chapter 2 49 London Borough of Hammersmith and Fulham: UDP Alterations

discrimination and to promote equality of opportunity and good relations between the different racial groups". In respect of land use planning this can include positive action in planning policies, procedures, standards and decision making, and taking special steps to ensure that black people have equal access to the benefits offered by town planning. Circular 78/1990, which sets out the new criteria for grant aid under Section 11 of the Local Government Act 1966, supports this approach when it makes clear that applications for 75% of salary costs will be considered for new planning staff to meet the special needs of ethnic minorities. These needs could be:

"to increase ethnic minority awareness of planning procedures ...... and to encourage more involvement in development planning."

Chronically Sick and Disabled Persons Act 1970 2.19 The Chronically Sick and Disabled Persons Act 1970 requires that all new buildings, conversions and major extensions that are to be used by the public are, where reasonable and practicable, to be accessible to people with disabilities and to have facilities for them. The Town and Country Planning Act 1990 (Section 76) requires local authorities to draw the attention of developers to this legislation, together with additional circulars and advice such as the Code of Practice for Access of the Disabled to Buildings (BS5810:1979). This legislation is supported by the Building Regulations 1991: Approved Document M "Access for Disabled People" as amended by the Building Regulations (Amendment) 1998 which now applies apply to both dwellings and non-domestic buildings. Non-domestic buildings are covered in Sections 1-5 of the Approved Document and apply to which are buildings which are newly erected or have been substantially reconstructed, and to extensions to buildings which include a ground storey. This document, which may be extended to include housing, requires that reasonable provision is made to enable people with disabilities to gain access to all storeys of a building to which the public is admitted either as visitors or employees, and for reasonable provision of sanitary conveniences to be made.

Disability Discrimination Act 1995 2.19a The Act makes it an offence to discriminate against a person with a disability by providing new rights in the areas of employment, obtaining goods and services, and buying or renting land or property. From October 1999 a service provider will have to take reasonable steps to change any practice, policy or procedure that could be deemed to discriminate, and by 2004 physical barriers will be required to be removed so that a disabled person may use the service.

Sex Discrimination Act 1975 2.20 The Sex Discrimination Act 1975 and the Equal Opportunities Commission recognise the relative inequality of women in society. They are mainly concerned with employment recruitment and conditions of service, but their spirit can be extended to land use planning. For example, the provision of workplace nurseries or the enhancement of public transport will make it easier for women to obtain jobs, and will reduce the scope for employers, directly or indirectly, to discriminate.

Regional policy 2.21 RPG9 Regional Planning Guidance for the South East recognises in paragraph 1.9 "Opportunity and Choice" that:

Chapter 2 50 London Borough of Hammersmith and Fulham: UDP Alterations

"Planning policies have an important part to play in facilitating opportunity and choice. Economic prosperity is essential for the South East to be able to offer its people improved opportunities and quality of life. The region needs sufficient housing to meet the requirements of its population. Its transport system must provide for the economic and social needs for access; and new development should be located in ways likely to provide people with a choice of means of travel." “has a vision of encouraging economic success throughout the Region ensuring a higher quality environment with management of natural resources, opportunity and equity for the Region’s population, and a more sustainable pattern of development”.

Strategic/London-wide policy 2.22 Strategic Guidance for London Planning Authorities (RPG3) gives few indications of how planning policies should address the needs of people who live and work in London. However the guidance refers to notes that:

“the areas of greatest need require comprehensive programmes targeted to improving their social infrastructure, raising quality of life of their residents and improving accessibility to the employment, cultural and leisure opportunities which London has to offer. Local strategies may be targeted on housing estates or on focal points such as town centres”

"London (which) must be a city where ... community life can flourish" (para. 2) and continues by saying that:

"... guidance does not deal with aspects that are essentially local and which are best dealt with by the local planning authority in preparing the UDP" (para 8).

2.23 The Guidance says that the Government has taken note of LPAC's views on land use planning and the relationship with wider social matters. Although it does not follow these through it does not dismiss them, and as a result the Council has particularly looked to LPAC's Strategic Advice. LPAC's 1994 Advice builds upon the vision of "Opportunities for All" first included in 1988 Advice and states that:

"London should be a city where the potential of all who live here is recognised and realised. It should be a place which strives to ensure equitable access for its people to homes, work, leisure and recreation, infrastructure and transport facilities, health, education and training. London’s most important resource, its people and its communities, are too valuable to be misused or wasted." In addition, the Council acknowledges the objectives of LPAC's policy on Areas of Community Regeneration as set out in Advice, although at this stage additional advice is awaited before considering the possible application of this framework.

Local policy 2.24 The council’s priorities include tackling social exclusion, achieving sustainable communities and promoting employment and enterprise. It has developed a number of strategies which support these objectives, including the Community Strategy, the Anti Poverty Strategy, the Regeneration Strategy and the Crime and Disorder Reduction Strategy. Other corporate priorities include the Community Care Plan and the Health Improvement Programme. Overarching these strategies, plans and programmes is the council's equal opportunities policy which recognises:

Chapter 2 51 London Borough of Hammersmith and Fulham: UDP Alterations

"that discrimination against women, black people, the Irish and other national and ethnic groups, lesbians and gay men, and people with disabilities is endemic and systematic within our society".

It continues by stating that:

"discrimination operates through a number of commonly held assumptions and prejudices which are rooted in the history of our culture and society, and are reinforced by laws, rules and customs".

2.25 The Council is committed to opposing racism, sexism and all forms of discrimination and disadvantage faced by such groups. It recognises that tackling discrimination and disadvantage is an immense task and that the promotion of equality of opportunity involves more than a commitment to remove discrimination - it also means redressing the inequalities that exist by positive policies aimed at tackling past discrimination.

STRATEGY

2.26 The overall population of Hammersmith and Fulham is diverse, and despite the outward appearance of affluence the borough remains the 18th most deprived in England, facing many social needs and problems and containing a number of pockets of intense deprivation. likely either to remain stable or to increase slightly during the next 10 years. However there will nonetheless be changes, for example, between different age groups and between different parts of the Borough. The Plan's policies are drafted so as to take account of these population changes and to try to provide not only for current needs but also for the needs of future generations. The policies are drafted to complement and link where appropriate to other council strategies and programmes, including area based initiatives such as the White City SRB programme and Bridging the Divides SRB programme, so that a holistic approach is taken to meeting the borough’s needs. try to best meet these needs in a framework of equality of opportunity for all.

2.27 The general case for considering equality of opportunity issues when preparing a land use plan is acknowledged in the Government White Paper "This Common Inheritance" and expanded upon in PPG12. This PPG states that:

"in preparing detailed plans too, authorities will wish to consider the relationship of planning policies and proposals to social needs and problems" but unfortunately this principle is not developed in Strategic Guidance which predates PPG12. Whilst it is the Council's view that this is a serious omission in Strategic Guidance, its opinion is that non-planning legislation, LPAC's Strategic Advice, PPG12 and more recent Government Guidance in RPG9 and in PPG13 make it clear that equality of opportunity issues need to be tackled in detail in Unitary Development Plans.

2.28 Strategic Guidance states that it does not deal with aspects which are essentially local, and although the Council does not consider equality of opportunity solely a local issue it puts great emphasis on its own equal opportunities policy (described in para 2.24). In implementing the policies and proposals of the Plan the council will take into account corporate priorities. It will give specific consideration to the needs of disadvantaged groups in the borough including black and ethnic

Chapter 2 52 London Borough of Hammersmith and Fulham: UDP Alterations

minorities, women, people with disabilities, gay men and lesbians, young children, older people and single parent families, whilst recognising that many policies and proposals have equality of opportunity implications for tackling social exclusion for to Londoners as a whole. The key issues affecting disadvantaged and discriminated groups which the council's strategy attempts to tackle are included in Table 2.4 which also includes Part 2 policy reference numbers where policies are expanded in detail.

Chapter 2 53 London Borough of Hammersmith and Fulham: UDP Alterations

Chapter 2 54 London Borough of Hammersmith and Fulham: UDP Alterations

Chapter 2 55 London Borough of Hammersmith and Fulham: UDP Alterations

Chapter 2 56 London Borough of Hammersmith and Fulham: UDP Alterations

Chapter 2 57 London Borough of Hammersmith and Fulham: UDP Alterations

CHAPTER 3: LAND-USE AND STRUCTURE

RESTATEMENT OF PART 1 POLICY G2: THE PHYSICAL STRUCTURE AND REGENERATION OF THE BOROUGH 60 JUSTIFICATION FOR PART 1 POLICY G2: 61 INTRODUCTION 61 ISSUES 61 THE TOWN CENTRES - HAMMERSMITH, FULHAM AND SHEPHERD'S BUSH 61 KEY LOCAL SHOPPING CENTRES 62 EMPLOYMENT ZONES 62 RESIDENTIAL AREAS 63 CONSERVATION AREAS 63 OPEN SPACES 64 RIVER AND RIVERSIDE 64 NATURE CONSERVATION AREAS AND GREEN CORRIDORS 65 SANDS END RIVERSIDE AREA 65 REGENERATION AREAS 65 POLICY CONTEXT 66 National policy 66 Regional policy 66 Strategic/London-wide policy 67 Local policy 67 STRATEGY 68

Chapter 3 58 London Borough of Hammersmith and Fulham: UDP Alterations

Chapter 3 59 London Borough of Hammersmith and Fulham: UDP Alterations

CHAPTER 3. LAND-USE AND STRUCTURE

RESTATEMENT OF PART 1 POLICY G2: THE PHYSICAL STRUCTURE AND REGENERATION OF THE BOROUGH

1994 Policy G2 replaced by altered text shown below

The council will seek the physical, social and economic regeneration of the borough having regard to sustaining the mix of uses that characterises much of the borough and the distinctive function and character of particular places and areas. Regeneration strategy will focus primarily on the main structural land use elements of the borough, as follows: a) The designated town centres of Hammersmith, Fulham and Shepherds Bush b) Key local shopping centres, and other protected parades and clusters of shops outside the town centres. c) The employment zones d) Residential areas e) Conservation areas and archaeological sites. f) Areas important for nature conservation. g) Open spaces that help define the urban structure of the borough. h) The river Thames and riverside.

The regeneration strategy will be pursued by:

1. Promoting land use policies to protect and enhance the main structural land use elements of the borough and its mixed-use character.

2. Fostering the vitality and viability of identified shopping and employment areas.

3. Welcoming development that will lead to balanced growth in the economic, social and physical wellbeing of the borough as a whole, and resisting those forms of development that will not.

5. Using planning conditions and negotiating planning obligations to [enhance the quality of development and the wider environment, and to ensure

Chapter 3 60 London Borough of Hammersmith and Fulham: UDP Alterations

that it makes a positive contribution to sustainable development, providing social, economic and environmental benefits to the community as a whole

6. Promoting site specific proposals,

7. Pursuing regeneration [and neighbourhood renewal] programmes in selected areas.

JUSTIFICATION FOR PART 1 POLICY G2:

INTRODUCTION

3.1 The borough of Hammersmith and Fulham is situated on the western edge of Inner London and is in Inner West London as defined by LPAC (see Figure 3.1). It is linked to the rest of London, with east- west road and rail linkages between the City and Heathrow being particularly strong (see Figure 3.2 ). Its location and the facilities which are present in the borough mean that it is a very important part of London attracting many visitors and providing employment opportunities for many people. It is also subject to continuing development interest for a variety of uses, including However, the location has also given rise to pressures for development of both new housing, hotels and offices. Strategic Guidance for London Planning Authorities (RPG3) notes that despite the long term need to readjust the economic balance between west and east London, the west London economy is of fundamental and national importance. development pressures have for many years been stronger in West than in East London, while LPAC's 1994 Advice states that with a sustained economic recovery, it is likely that much of West London will again be characterised by "overheating", including congestion and development pressure. This could affect London's as well as the borough's structure.

3.2 Hammersmith and Fulham has characteristics that distinguish it very clearly from other boroughs and allow for the identification of distinct areas within the borough itself. The distinction from other boroughs is in part defined by the natural barrier of the Thames and the West London railway line, but it is also a result of the physical structure of the borough whereby different areas and places have developed a character and identity of their own based on land use and function (for example residential, employment or entertainment facilities), environment (townscape and river) and the complex road and rail transport network which although providing some areas with good public transport accessibility leaves other areas deficient in services. These different areas include town centres, key local centres, conservation areas, open spaces and the other structural elements identified in Part 1 policy G2, and shown on Figure 3.3. The council wishes to see the retention of the different areas within the borough, and to ensure that this is done within a coherent and co-ordinated sustainable land-use and transportation framework. However, as one might expect in such an intensively developed borough, the boundaries of some of these areas overlap and the issues which the borough faces are often relevant to more than one area.

ISSUES

The Town Centres - Hammersmith, Fulham and Shepherd's Bush 3.3 Town centres are important in respect of their impact on regeneration and sustainability issues. Town centres are focal points where have always served as

Chapter 3 61 London Borough of Hammersmith and Fulham: UDP Alterations

places which people visit converge, or can converge, for a variety of activities. They contain within their boundaries not only retail outlets and business uses but also community service uses (including leisure facilities, cultural facilities and religious buildings) civic and public buildings and transportation facilities. In addition, town centres are also places where people live.

3.4 Each of Hammersmith and Fulham's three town centres has its own character or "sense of place" based on these activities, and on the buildings and spaces - their design, forms and relationships with each other - within which the activities are carried out. Each of the three town centres has a substantial area designated as a conservation area (see para. 3.17). The importance of the town centres has led the council to introduce a specific chapter in the Plan which looks at the issues facing these areas in detail.

3.5 - 3.11 All text moved to Town Centres chapter 9a

Key Local Shopping Centres 3.12 In addition to the three major town centres there are a number of smaller local centres throughout the borough. A number of these local centres have declined over the years and have lost their original function, but others continue to play a very important role in the lives of local residents. and are The council has identified key local shopping centres and other parades and clusters which serve many of the everyday shopping and local service needs of borough residents, particularly the less mobile. There are a number of pressures threatening the existence of these centres, with some shops under pressure to change changing to non-retail uses and others suffering from under- investment, due partly to an uncertain future as a result of changing shopping patterns, and falling population changes, and partly to displacement of shops by competing uses. Some of the centres also accommodate local businesses which, together with the shops, provide local employment opportunities, and also help maintain the local shopping centres.

Employment Zones 3.13 There are a number of areas within the borough, including land alongside the Thames, which have traditionally accommodated concentrations of industry, warehouses and distribution activities, and have excluded other uses. The employment uses within these areas have been subject to change brought about by market trends and changes in the nature of employment. However, employment activities, particularly the larger businesses in the borough, still predominate and there are concentrations of job opportunities for both borough and non-borough residents.

3.14 The character of the areas varies from employment zone to employment zone with each area having particular qualities as a result of size, existing land uses, location and surrounding uses. The level of accessibility also differs, with some zones having limited road access and a number being located in areas with particularly low levels of public transport. , which together with the other characteristics tends to make Different zones suitable for differing have different types of employment. Many of the zones and the businesses within them are facing challenges which will affect their traditional employment function. Of particular importance are the 1987 Use Classes Order and 1988 General Development Order which remove many of limit the council's former powers to control land use change.

Chapter 3 62 London Borough of Hammersmith and Fulham: UDP Alterations

3.15 The Hythe Road employment zone, together with the Old Oak Common Sidings site, is part of a much larger employment area defined as the Park Royal Regeneration Area. It extends across parts of the London Boroughs of Ealing and Brent as well as this borough. This is a non-statutory designation, but the three boroughs with other public organisations and private partners form the Park Royal Partnership which aims to promote the physical, social and economic regeneration of the area. Full realisation of the area's potential requires major investment in public transport improvements, especially to enhance accessibility to and from the wider surrounding area. The Park Royal Regeneration Area is identified in RPG3 as a Major Regeneration Opportunity and by LPAC as a Preferred Industrial Location. LPAC's 1994 Advice as an Opportunity Area which, in turn, is included in the Paddington-Park Royal Corridor where LPAC considers the:

"mix of economic, housing and other development can be considered on a strategic scale, linked to existing industrial areas, and related to transport accessibility and labour catchments."

LPAC identify the Wood Lane employment zone as an Industrial Business Park.

Residential areas 3.16 Much of the borough is predominantly residential in character and scale with large areas of private and public housing with associated facilities such as schools, libraries, shops, businesses and open space serving the local community. Some areas have experienced great physical change this century including comprehensive residential redevelopment schemes involving slum clearance in the 1960's and 1970's, conversion of multi-occupied and other large properties into self-contained flats, loss of local services and employment, and pressure from commercial development. At the same time they have suffered a considerable loss also experienced considerable changes of population and a change in the composition of the population (see Chapter 2, Population and Equality of Opportunity). Despite these changes many of the areas have managed to retain their residential character and are areas of fine townscape quality, which in some cases has been recognised through conservation area designation. However other areas have not fared so well and suffer from poor environmental quality, and poor housing and the effects of social exclusion. In some places, whether in the areas of good or poor physical quality, there is development pressure to which threatens to lead to change to from low to higher value uses (for example, industrial businesses to offices, and low-cost to high cost housing) and to change from uses which serve the local community. In general, residential areas are also under threat from increasing traffic and parking problems.

Conservation areas 3.17 Most of the borough's fabric dates from the nineteenth and early twentieth centuries, and there are many areas with a special quality or character. These areas cover substantial parts of the borough, mainly coinciding with residential areas, but also including the three town centres (where there are many buildings of architectural or historic importance) and much of the riverside. They include significant elements of the borough's heritage, not only Listed Buildings, but other features such as open spaces, trees and the street pattern which also contribute to their special quality and which are cherished by the local population. Changes within the areas have occurred and will continue as, for example, householders in the residential areas extend or adapt properties and as property developers in the town centres build new developments. It is important for all residents that these changes preserve and

Chapter 3 63 London Borough of Hammersmith and Fulham: UDP Alterations

enhance rather than detract from the character and quality of the conservation areas. The council has commenced a programme for the preparation of Character Area Profiles for these areas.

Open spaces 3.18 Open spaces are important in terms of their appearance and effect on the character of an area as well as their function for active and passive recreation and nature conservation. They comprise have a variety of sizes, uses, ownership and locations, and consequently have different characteristics. They are important structural features of the borough and some, particularly the areas of Metropolitan Open Land, are important structural elements in a London-wide context. [In addition, the borough includes a longer distance walking route, namely the Thames Path National Trail, which links broader areas of open space alongside the river]. The river forms a unique linear open space of strategic importance which benefits the community, as does the Barn Elms Reservoirs Wildfowl and Wetlands Trust (WWT) Centre which although in Richmond have an important visual impact on the borough. The open spaces help to break up the heavily built-up environment by providing open areas and "green lungs" and are important community facilities, adding to the quality of life both of residents, many of whom have no gardens, and of visitors. Although open spaces are distributed throughout the borough there is insufficient provision in some areas, while in others the design of open spaces needs to be improved in respect of safety and security. Much open space is held privately but still has a value to the community although there may be no public access. Like public open space, this is often in need of improvement. In addition, in some instances it is under threat from development which if allowed in such a heavily built up borough could have a detrimental effect upon its character.

River and riverside 3.19 The river is a major strategic element, not only of the borough but of London as a whole. It is a feature which many residents and Londoners identify with, and helps define the uniqueness of Hammersmith and Fulham, including its physical separation from the boroughs of Wandsworth and Richmond. The river performs a number of functions including those related to recreation and transport, while it is also a nature conservation resource and a major townscape feature of visual and historic interest (including the three bridges). The adjoining riverside is in a mixture of uses with large stretches of residential development, open spaces and diminishing (but still significant) tracts of land in employment use, each with its own characteristics. It is also adjoined in parts by a "riverside walk" which forms part of the Countryside Commission's [Agency’s] Thames Path National Trail. Much of the riverside environment is of a high quality, but other areas, particularly within the employment zones, are less attractive. The riverside employment zones are the main areas of change, with many of the industrial sites under pressure from office development and housing. Three wharves have been identified for safeguarding by the Government.

3.19a The council is a partner in a new Thames Strategy covering the area from Kew to Chelsea. The Strategy is being progressed by a steering group comprising the relevant riparian boroughs, the Government Office for London, the London Planning Advisory Committee, English Heritage, the Environment Agency, the Port of London Authority and local societies under the banner of the West London River Group. The Thames Strategy for Kew to Chelsea will use the approach developed in the Thames Landscape Strategy combined with work required by Thames Guidance RPG3b/9b

Chapter 3 64 London Borough of Hammersmith and Fulham: UDP Alterations

to deliver detailed appraisals of the Thames and its environs within the Thames Policy Area.

Nature Conservation Areas and Green Corridors 3.20 The borough is not rich in flora and fauna. However the council has identified in consultation with the London Ecology Unit a number of Nature Conservation Areas, including three of Metropolitan Importance including the Thames and the Grand Union Canal. In addition there are green corridors which act as corridors and links to other areas in and outside the borough in which plants grow and animals live. These areas, although not of Nature Conservation Area status, have an ecological value which adds to the diversity and richness of the borough, but are under threat from a variety of sources including development proposals for new railway works.

Sands End riverside area 3.21 Historically an area of public utilities and bulk handling industries serving the needs of Inner London and using the river and rail for transport, Sands End had been in decline for many years before it attracted development interest in the late 70's. Since then a number of sites have been developed for a variety of uses, including B1 business uses, housing and a superstore; but there are further large tracts of unused and underused land either with planning permission or the subject of development proposals, which are available for development, and pressures on those businesses which remain. The area is identified as an employment zone, but its very poor level of public transport accessibility, the limited traffic capacity of the local roads and the unique opportunity of large areas of surplus land in a riverside location, means that in addition to continuing as a source of local employment there is the potential for the riverside to be opened up as a place where housing, open space and other needs of local residents can also be met (see policies for Sites 32, 47 and A).

Regeneration areas 3.21a The council has defined a large part of the borough as a regeneration area. It has been successful in obtaining substantial funds from the Government’s Single Regeneration Budget (SRB) for two programmes. The White City SRB programme covers the wards of College Park and Old Oak and Shepherds Bush, and the “Bridging the Divides” SRB programme includes an area of 12 wards which adjoin the White City area and extend down the eastern part of the borough to the river. The borough is also part of the Park Royal Regeneration Area which includes parts of the London Boroughs of Ealing and Brent together with the northern part of this borough. 1.41 The Park Royal Regeneration Area is a non-statutory designation. It extends over parts of the London Boroughs of Hammersmith and Fulham, Ealing and Brent. It is a very important employment area within London and includes, in this Borough, the Hythe Road Employment Zone and the Old Oak Common Sidings Site. The three Boroughs with other public organisations and private partners form the Park Royal The Partnership which aims to promote the physical, social and economic regeneration of the area. Full realisation of the area’s potential requires major investment in public transport improvements, especially to enhance accessibility to and from the wider surrounding area. Park Royal is part of a wider area that has been granted Assisted Area Status by the Department of Trade and Industry: one of only two such areas in London. In this borough, the Assisted Area includes the Old Oak and College Park and the White City and Shepherd’s Bush wards.

Chapter 3 65 London Borough of Hammersmith and Fulham: UDP Alterations

3.21b The programmes in these areas are overseen by public/private partnerships and bring together SRB funding with money from the private sector and other public organisations. The spending programmes are intended to fund projects targeted at job retention and creation, employment training, business support and improvements to the environment and transport. The UDP and the implementation of planning and transportation policies complement the regeneration programmes, particularly through the policies for land-use and development and the improvement of public transport. This is particularly the case in relation to Shepherds Bush and Fulham town centres and the employment zones.

POLICY CONTEXT

National policy 3.22 The Government's policy on land-use planning is set out in legislation and expanded upon in Planning Policy Guidance Notes and Circulars. It is however the PPGs which provide the most up to-date position on Government advice. These documents recognise that plans should include land-use policies on a number of different topics and that these policies should incorporate the concept of sustainability. The PPGs cover topics such as housing, employment and retail, and often include a geographical perspective, for example town centres and the river. The Council considers that its structural approach to land-use planning is complementary to the objectives of PPGs, and to the increasing acknowledgement for the need to plan for a more sustainable future.

3.23 PPG1 states that:

"the planning system has a positive role to play in guiding appropriate development to the right place, as well as preventing development which is not acceptable .... the planning system can secure economy, efficiency and amenity in the use of land".

PPG12 states that:

"Plans must make adequate provision for development (the new homes and workplaces the nation needs) and at the same time take account of the need to protect the natural and built environment".

PPG13 states that:

"Different areas will offer different opportunities and face different problems"

The principles included in these and other PPGs are described in more detail in respective topic chapters.

Regional policy 3.24 SERPLAN's regional statement: A New Strategy for the South East gives a broad description of the structural features of the south east. RPG9 Planning Guidance for the South East (March 2001) also recognises various geographical sectors and notes London as the focus of the region. The RPG does not look at the detailed local level, but consideration of local structural elements is considered implicit in the statement that: particularly as reference is made to spatial elements such as town centres, local neighbourhood centres, open space and green corridors, as well as the Western Policy Area which includes west London.

Chapter 3 66 London Borough of Hammersmith and Fulham: UDP Alterations

"planning authorities should bear in mind the need to facilitate developments which will enhance London as a place to work, live and undertake leisure activities, whilst simultaneously conserving its popular environmental features such as Metropolitan Open Land".

Strategic/London-wide policy 3.25 Strategic Guidance for London Planning Authorities (RPG3) recognises the importance of structural features such as town centres, local centres, open spaces, residential districts, conservation areas and the river (para. 10). These features are also recognised in LPAC's Advice in its section on London's Structure but it looks at them more closely, e.g. it identifies Hammersmith Centre as a Strategic Major Centre and includes different structural terms such as Areas of Community Regeneration. RPG3 also states that boroughs should:

“define areas where resources need to be concentrated to create a better environment and provide employment opportunities”

3.26 LPAC in its 1994 Advice considered that: "The structural framework for London is especially important in setting the geographical basis for policies aimed at urban regeneration and addressing imbalances in its economy. It is also important in achieving sustainability, obtaining optimal use and re-use of urban land and improving the relationship between efficient public transport and the pattern of development".

3.26a The council has joined with other West London boroughs to work on the promotion of joint strategies where there is a common interest. The Park Royal Partnership between this borough, the London Boroughs of Ealing and Brent and private and other public sector partners has developed a common regeneration strategy supported by the individual Unitary Development Plans. The grouping of boroughs and other partners known as West London Leadership (WELL) has initially obtained Government transport policies and programme funding for projects across the area. It is continuing to examine other issues of a strategic nature where there could be benefits in establishing a West London strategy and programme.

Local policy 3.27 The council has for many years adopted a structural approach to land use planning and has recognised that the borough is a grouping of different areas and communities. Former development plans have noted the importance of specific land use and transport policies for areas where there are special problems or opportunities for change, and indeed other boroughs, bodies and organisations have generally recognised that this is a valid approach. Thus, for example, town centres and employment zones have been identified in previous land use plans as areas where employment opportunities should be concentrated, subject to the application of plot ratio in accordance with public transport accessibility (PTAL), and conservation areas as places where the area's character will be particularly protected and enhanced. More recently the council has developed area based regeneration initiatives aimed at addressing deprivation and social exclusion across contiguous areas of the borough, namely the White City SRB and the Bridging the Divides SRB.

3.28 The council has also been concerned from a land use structural point of view about the policies and proposals of neighbouring boroughs so that they do not detract from this approach. It has therefore pursued an active involvement in those

Chapter 3 67 London Borough of Hammersmith and Fulham: UDP Alterations

policies and proposals which it considers will have an impact on Hammersmith and Fulham. Currently such developments include the Barn Elms development proposals in Richmond, the Park Royal regeneration initiative being pursued by the Park Royal Partnership and the changing Wandsworth riverside area. However, benefits can result from cross-borough co-ordination. The council is actively involved in the Park Royal Partnership with the London Boroughs of Ealing and Brent, and public and private sector organisations, to promote the physical, social and economic regeneration of the Park Royal Regeneration Area which extends into the north of this borough.

STRATEGY

3.29 Policy guidance at a national, regional and London-wide level establishes the importance of a structural consideration in land-use planning, and of the co- ordination of land-use with transportation. The council supports the structural approach and recognises it should happen across London and cannot be based on isolated planning within boroughs. The UDP policies in this Plan have been developed with a careful regard to achieving a structure which is environmentally sustainable in respect of both the borough, and its surrounding area and London as a whole. There are two Key elements are to this approach: protection of the environment and character of places; and the location of jobs and services at points in the borough where the need to travel is reduced and the transportation network makes them accessible to everyone according to their needs; and policies which support council social inclusion strategies and regeneration programmes.

3.30 The Plan seeks to ensure that development and growth are sustainable. The policies recognise that in certain areas, especially residential and/or conservation areas, particular land-uses or forms of development, possibly subject to scale, may not be acceptable because of design, nuisance or traffic generation, but there will still be a need for local services of one sort or another. In town centres a variety of activities should be maintained and encouraged to complement the shopping functions and sustain their vitality and interest.

3.31 In respect of the accessibility of jobs and services, the policies reflect particularly the guidance provided in PPG13 and look to maintain and encourage a range of jobs and services (shopping, health, entertainment, recreation, etc) at appropriate and convenient locations relative to the populations they serve and taking into account that a large proportion of the population do not have access to a private car to meet their needs. Co-ordination of land-use and public transportation should also reduce the need for car travel and give environmental benefits in the borough and further afield.

3.32 Policies will aim to direct different land-uses towards suitable locations according to their function and size, and discourage or prevent them in places which are inaccessible or where there would be environmental conflict. This is not a rigid land use zoning but it is intended to provide a large degree of clarity in the nature of the policies that will apply in different parts of the borough. The detailed development control policies in Part 2 of the Plan which relate to the structural objectives described above are indicated against the Part 1 policy G2 in Chapter 1 and in its restatement at the start of this chapter.

Chapter 3 68 London Borough of Hammersmith and Fulham: UDP Alterations

CHAPTER 4: ENVIRONMENT

RESTATEMENT OF PART 1 POLICY G3: ENVIRONMENT 74

RESTATEMENT OF PART 1 POLICY G8: THE RIVER THAMES AND THAMES POLICY AREA 75

JUSTIFICATION FOR PART 1 POLICIES: 75

INTRODUCTION 75

ISSUES 76 Retention of the character of different parts of the borough 76 Quality and accessibility of new buildings 77 Open space deficiency 77 Nature conservation 78 Energy and resource use and environmental pollution protection 78 Telecommunications 79 Administration of waste collection and disposal 79 Sustainable Waste Management 79 The River Thames 81

THE POLICY CONTEXT 81 International policy 82 European Policy 82 National policy guidance on environmental issues 82 Environmental assessment 84 National guidance on other issues 84 Regional planning guidance 86 London-wide Strategic Guidance 86 LPAC Strategic Advice 87 Other Agencies 87

STRATEGY 87 Areas and buildings of special character 88 Design of new developments 88 Open space 89 Nature conservation 89 Resource conservation 89 The River Thames 89

THE BUILT ENVIRONMENT - PROTECTION OF EXISTING CHARACTER 90 EN1 CONSERVATION AREAS 90 EN2 DEVELOPMENT IN CONSERVATION AREAS 90 EN2A APPLICATIONS FOR DEVELOPMENT IN CONSERVATION AREAS 92 EN2C FACADISM IN CONSERVATION AREAS 92 EN2D DEVELOPMENT AFFECTING HISTORIC PARKS AND GARDENS 93

Chapter 4 70 London Borough of Hammersmith and Fulham: UDP Alterations

EN2E OPPORTUNITY SITES IN CONSERVATION AREAS 94 EN3 LISTED BUILDINGS 94 EN4 USE AND MAINTENANCE OF LISTED BUILDINGS 94 EN5 THE LOCAL REGISTER OF BUILDINGS OF MERIT 95

DESIGN POLICIES FOR THE BUILT ENVIRONMENT 97 EN8 DESIGN OF NEW DEVELOPMENTS 97 EN8b DESIGN OF EXTENSIONS 100 EN8C LEGIBILITY OF TOWN CENTRES 100 EN8d SHOPFRONTS 101 EN8f replacement WINDOWS 102 EN9 HIGH BUILDINGS 102 EN10 DESIGNING OUT CRIME SAFETY IN NEW DEVELOPMENTS 104 EN11 ACCESS TO, AND INSIDE, BUILDINGS FOR PEOPLE WITH DISABILITIES 104 EN12 ACCESS WITHIN OPEN AREAS USED BY THE PUBLIC and design 104 EN13 PUBLIC ART 105 EN14 ADVERTISEMENTS 106 EN15 FRONT ROOF EXTENSIONS AND ADDITIONAL STOREYS 106

ENERGY, RECYCLING AND POLLUTION ENVIRONMENTAL PROTECTION POLICIES 107 EN16 ENERGY CONSERVATION AND RENEWABLE ENERGY 107 EN16A ENERGY GENERATION 108 Current Governmental policy on renewable energy (PPG22) encourages new sources that are economically viable and environmentally acceptable. This includes potential new energy from waste facilities that should be sited as close as possible to the waste source to reduce adverse transportation impacts. There are means of palliative pollution control for many of the environmental impacts that may arise from renewable energy installations, in addition to those preventive controls afforded by the planning system. 108 EN17 WASTE COLLECTION AND DISPOSAL 108 EN18 WASTE RECYCLING DEPOT 109 EN19 PRIVATE REFUSE TRANSFER STATIONS WASTE MANAGEMENT FACILITIES 110 EN19A RECYCLING OF DEMOLITION WASTE 111 EN 20 POLLUTION 111 EN20A control of potentially polluting uses 112 EN20B NOISE pollution 112 EN20C LIGHT POLLUTION 113 EN21 ENVIRONMENTAL NUISANCE 114 EN21A DEVELOPMENT ON CONTAMINATED LAND 115

OPEN SPACE AND NATURE CONSERVATION POLICIES 115 EN22 LOSS OF OPEN SPACE PUBLIC OPEN SPACE AND OTHER GREEN SPACE OF BOROUGH-WIDE IMPORTANCE 115 The proposed development would release a site for built development needed to realise a qualitative gain for the local community in pursuance of other physical social and economic objectives of the UDP, and would provide for relocation of the open space to a site in the locality which is at least

Chapter 4 71 London Borough of Hammersmith and Fulham: UDP Alterations

equivalent in size, quality, accessibility, usefulness and attractiveness to that being lost 117 Open spaces at the front, rear and sides of buildings are also valuable as an expression of the form of settlement pattern. The filling of voids between buildings can damage the quality of the townscape (see policies EN2D and EN3). 117 EN23 NEW OPEN SPACE Open space provision in connection with development 117 EN23A OPEN SPACE PROVISION IN NEW DEVELOPMENT 119 EN23B CHILDRENS PLAY AREAS 119 EN24 METROPOLITAN OPEN LAND 120 EN25 PROTECTION OF TREES 121 EN26 TREE PLANTING 122 EN27 NATURE CONSERVATION AREAS 122 EN28 GREEN CORRIDORS 123 EN28a Species Protection 124 EN29 NATURE CONSERVATION ON DEVELOPMENT SITES 125 EN30 VACANT SITES 125

RIVER AND CANAL POLICIES 126 EN31 THE THAMES AND THAMES SIDE AREA OF SPECIAL CHARACTER IMPORTANT VIEWS ALONG, ACROSS, AND FROM, THE RIVER 126 EN31A THE NATURAL ENVIRONMENT OF THE THAMES 130 EN32 USE OF THE RIVER PROVISION FOR WATER-BASED ACTIVITY AND USES IN THE RIVER 130 EN33 USE OF THE RIVERSIDE DEVELOPMENT OF RIVERSIDE SITES 131 EN34 THE RIVERSIDE WALK 131 EN35 STRUCTURES AND RECLAMATION IN THE RIVER DEVELOPMENT THAT ENCROACHES INTO THE RIVER OR ONTO THE FORESHORE 133 EN36 MOORINGS IN THE RIVER 134 EN37 CRITERIA FOR DEVELOPMENTS IN THE RIVER 135 EN38 DEVELOPMENTS ON THE RIVERSIDE 135 EN39 FLOOD PREVENTION 135 EN40 THE GRAND UNION CANAL 136

TELECOMMUNICATIONS POLICY 137 EN41 TELECOMMUNICATIONS 137

Appendix 4.8 Notifiable Installations and Associated Consultation Distances 141

NB. Appendices not subject to proposed alterations are not included in this document

Chapter 4 72 London Borough of Hammersmith and Fulham: UDP Alterations

Chapter 4 73 London Borough of Hammersmith and Fulham: UDP Alterations

CHAPTER 4: ENVIRONMENT

RESTATEMENT OF PART 1 POLICY G3: ENVIRONMENT

The council will seek to conserve, protect and enhance the quality, character and identity of the borough's built and open environment; and to address wider environmental issues such as the sustainability of development and growth, global warming, and resource and energy conservation as far as possible through local land-use and transportation planning in the following ways: a) preserving and enhancing buildings and areas of special character; EN1-7, EN31, Sites 19, 34, 36, 79, E b) requiring new development to create a safe and secure environment, be of a high standard of design that will contribute to enhancing the townscape of the locality, be compatible with the scale and character of the surroundings, and respect important local and long-distance views; EN8-15, EN21 c) protecting Metropolitan Open Land and other open space, and seeking additional open space provision, especially in areas of deficiency; EN22-24, Sites 17, 32, 36, 22A d) promoting ecological principles, recognising and protecting the natural environment and biodiversity of the borough, by protecting, managing, and seeking to enhance nature conservation areas and green corridors linking with other boroughs, and developing new nature conservation areas where possible and securing the protection and enhancement of features of nature conservation interest in connection with development proposals.; EN25-30, EN40, Sites 22, 36, 84, 22A e) making the environment safer and more accessible for all; EN10-12, EN20-21A,TN7,TN10,TN11,TN16,S1 f) seeking a reduction in pollution and waste, including carbon dioxide emissions and other pollution from road traffic and other forms of transport. It will seek to ensure that the collection and disposal of waste is carried out so as to minimise the traffic and environmental impact, both within the borough and elsewhere; EN20-21A, S1 g) promoting energy and resource conservation, by recycling and measures to increase energy efficiency; EN16-17, S1 h) ensuring, whilst taking account of the strategic requirements of telecommunications networks, that the development of telecommunication facilities respects the physical character of the borough and minimises visual impact. EN41

Chapter 4 74 London Borough of Hammersmith and Fulham: UDP Alterations

RESTATEMENT OF PART 1 POLICY G8: THE RIVER THAMES AND THAMES POLICY AREA

The council will seek to protect and enhance the character, use and ecology and archaeology of the River Thames and the riverside by: a) river and riverside as an Area of Special Character; EN31, EN38 a b) seeking increased public access to the riverside by continuing to implement a continuous riverwalk, as part of the Thames Path National Trail, and by requiring access to it through development schemes, EN33, EN34 Sites 8,19,32,71,76, 22A b c) encouraging increased use of the river, for transport and recreation, provided that this is not detrimental to its ecology and environmental character and does not cause unacceptable pollution; and encouraging continued use of wharves and improved access where appropriate to the foreshore; EN32, EN35, EN36, EN37 TN31 c d) requiring all riverside developments to respect the environment and enhance the special character of the river and riverside while maintaining the integrity of the Thames flood defences. EN31, EN33, EN34, EN38, EN39, Sites 8,19,32,71,76, 22A

JUSTIFICATION FOR PART 1 POLICIES:

INTRODUCTION

4.1 Environmental quality has always been a key objective of town planning. Traditionally there has been concern, primarily, with the appearance of an area, the effect of development on residents' quality of life and the intrusion of non-conforming uses. Now, however, there is in northern Europe a general anxiety about the unwelcome side-effects of affluence and modern technology on our environment. The environment is now a political issue on a world-wide scale. In recent years concerns for the environment have become broader and are now considered as one element of the achievement of sustainable development. The UDP environmental policies are part of this wider context. Three main levels of concern can be recognised, and these form the background to the UDP policies:

* Global issues such as the greenhouse effect, depletion of the ozone layer, destruction of wildlife habitats and environmental deterioration through unsustainable use of resources.

* European and National problems such as water quality, acid rain and other forms of pollution.

* Local problems such as urban dereliction, excessive levels of traffic, noise and poor visual quality. 4.2 These concerns have been recognised at the international level. In June 1992 the United Nations Conference on Environment and Development (UNCED -

Chapter 4 75 London Borough of Hammersmith and Fulham: UDP Alterations

"The Earth Summit") took place in Rio de Janeiro, where the achievement of sustainable development was the central theme. The World Commission on Environment and Development in their report "Our Common Future" defined "Sustainable Development" as:

"development that meets the needs of the present without compromising the ability of future generations to meet their own needs".

It aims to reconcile environmental protection with human welfare. In practice this means that it has to be accepted that there are limits to the capacity of the environment to support human activities.

4.3 The UK Government has also recognised these concerns and has published its environmental strategy in the White Paper "This Common Inheritance" and in January 1994 the Government published the "UK Strategy for Sustainable Development" which is intended to be the national action plan for implementing Agenda 21, which was adopted by the world's governments at "The Earth Summit" in 1992. These documents and Planning Policy Guidance Notes, particularly PPG 12, provide guidance on the environmental issues that should be addressed in local plan policies.

4.4 Environmental concerns and the need to achieve sustainable development are relevant to all the matters in this Plan, and underlie all its policies. The purpose of a local plan is the application of sound environmental principles to local problems. Local policies can interact with global issues; for instance, energy conservation, the reduction and recovery recycling of waste, or the reduction of car travel and consequential carbon dioxide emissions. There is much that local councils and local residents can and should do to resolve environmental problems.

4.5 The Plan aims to improve the environment for all. This means that particular attention will be given to equal access to a safe and secure environment, regardless of disabilities, and to buildings or other development.

ISSUES

Retention of the character of different parts of the borough 4.6 The character of the borough provided by its existing streets, buildings and open spaces is familiar to most residents. Familiar surroundings can give a sense of place, an identity for each locality, and provide a feeling of belonging and security. These surroundings, whether a street of nineteenth-century terraced houses, or a twentieth-century estate, may be highly valued by local residents. Many parts of the borough are included within designated conservation areas because of the their special architectural or historic interest and the desirability of preserving or enhancing their character or appearance. There are also many listed buildings and other buildings of merit. Such designation ensures that special protective provisions in the planning legislation apply to them. Designation of conservation areas is based on many considerations, which include:

(i) The presence of listed buildings or structures, including buildings and artefacts on the borough Local Register; (ii) Historic and architecturally interesting development; (iii) The special local character of an area; (iv) Any threat from potentially unsympathetic redevelopment; and

Chapter 4 76 London Borough of Hammersmith and Fulham: UDP Alterations

(v) Local support or proposals for designation

When listed buildings become vacant a particular problem that can arise is finding alternative uses which are viable and appropriate to the nature and character of the building.

4.7 Where landowners and developers seek to redevelop land for more profitable uses, this may result both in the loss of existing buildings or spaces which contribute to the character of the borough, and in changes in the character of particular places. Whilst some urban renewal is essential, there is an issue of the extent to which this can take place without radically changing cherished townscape character. When listed buildings become vacant a particular problem that can arise is finding alternative uses which are viable and appropriate to the nature and character of the building.

Quality and accessibility of new buildings 4.8 When development takes place, a common issue is the extent to which the new buildings should respect the townscape in the area where they are built. In this borough, it is rare that there are not some adjoining buildings, and the character of existing townscape is often so strong that buildings designed out of context would have a seriously negative effect. New buildings should also not have any unreasonable effect on the amenities of residents and users of adjacent buildings.

4.9 Good design is more than just a pleasing appearance which respects its context, it must also ensure the building and its surroundings can be used safely and securely by all, including any person with a disability. There are many difficulties faced by people with children or heavy shopping, people with impaired sight, hearing or physical disability. Examples include unnecessary steps and other obstacles, and heavy doors. Careful use of features such as tactile pavements and kerb ramps can make major improvements in mobility. It is also very important to increase both the reality and the sense of safety and personal security, for instance by avoiding designs which create hiding places or give opportunities for crime. New development whether large or small should take into account advice given in Circular 5/94 “Planning out Crime”

Open space deficiency 4.10 Open spaces are an important aspect of the character and quality of life in the borough. They perform a dual function of providing for recreation and enhancing the character of an area by bringing openness as well as an intrinsic aesthetic quality. These spaces can vary in size from a small sitting-out area to a major park, or Metropolitan Open Land. In the latter case they are also important for people outside the borough (as for example are Wormwood Scrubs and Bishops Park). Areas of private open space, such as school playing fields and private gardens within the curtilage of non-domestic buildings, may not have a general recreation use for the public but they are often important elements of the townscape and can safeguard biodiversity. Many parts of the borough are short of open spaces, both large and small, and some areas are defined as being deficient in open space and play area provision.

4.11 There is generally a strong demand for land for development which can put pressure for building on any temporary or private open space, and makes the provision of additional open space very difficult. Therefore, it is all the more essential to retain existing open space even if the apparent need for another use of

Chapter 4 77 London Borough of Hammersmith and Fulham: UDP Alterations

that land is strong. There can be no justification for building on every available plot of land, because all spaces, however small, are important in a densely built-up area such as this borough in order to provide recreation space, assist nature conservation and act as a contrast to buildings. Open space, once lost, is almost impossible to replace.

Nature conservation 4.12 Although Hammersmith and Fulham is an inner London borough and does not have significant areas of open space, nature conservation is an important issue (PPG9: Nature Conservation). Nature conservation can contribute to sustainable development and enhance the quality of life by safeguarding biodiversity and increasing wildlife habitats. Although Specific areas of the borough have been identified as being of nature conservation interest and are shown on the Proposals Map, there will also be nature conservation interests that are identified through the development control process. These interests may occur in back gardens, on residential amenity space and in other areas of open space, such as vacant sites, and will be subject to policy EN29 The River Thames, the Grand Union Canal and Kensal Green Cemetery are the only nature conservation features in the borough of Metropolitan Importance. However, there are other areas of borough- wide and local importance. These are listed in Appendix 4.1. Changes in agricultural practices have meant that urban areas have assumed increasing value for wildlife. Parks, churchyards, river, canal and railway embankments provide a refuge for wildlife that mechanised farming has driven from the countryside. The value of any site to wildlife can be enhanced if sites are linked by a "green corridor", providing for migration along rail or water links, or by a "green chain" of linked open spaces. A wildlife site may also be valuable as an educational and recreational resource.

There may be other sites and areas in the borough not identified on the Proposals Map which might be of importance for particular species or habitats, it is important that these are also protected by the Plan policies. Additional important habitats may be identified through the preparation of a Local Biodiversity Action Plan, or as the result of other local site investigations

Energy and resource use and environmental pollution protection 4.13 In addition to the more traditional environmental issues, local planning authorities should ensure that newer environmental concerns such as air pollution, global warming and the consumption of non-renewable resources are also considered. Local action can and must contribute to the solution of global problems of environmental degradation and poverty. In the last forty years there has been a rapid increase in energy use in Britain and most of this energy is produced by burning fossil fuels, which not only results in the depletion of valuable non-renewable resources but leads to the production of carbon dioxide and other greenhouse gases and so contributes to the potential for global warming. The burning of fossil fuels (particularly coal and oil) results in the emission of oxides of sulphur and nitrogen, which can result in acid rain and other pollutants, such as low-level ozone which can be harmful to health. Some pollution such as lead from petrol, is reducing has reduced - in this case, due to the widespread introduction of lead free petrol.

4.14 In London in 1991 transport was responsible for 29% of total energy use in London and for 36% of carbon dioxide emissions, for nearly a quarter of sulphur dioxide emissions, for 80% of nitrogen oxide and nearly all the other major pollutants - black smoke, carbon monoxide, hydrocarbons and other volatile organic compounds including benzene. Domestic energy consumption was responsible for

Chapter 4 78 London Borough of Hammersmith and Fulham: UDP Alterations

36% of energy use in London and for 30% of carbon dioxide emission but the emission of other pollutants was negligible or very low (London Energy Study, London Research Centre, 1993).

4.15 Development plan policies, as Planning Policy Guidance Notes 12 and 13 make clear, need to consider the implications for energy consumption and the emission of greenhouse gases in the location of new development. The relationship of land use to transport can both reduce the need for travel and increase the use of public transport or cycling or walking, all of which reduce the consumption of energy.

4.16 The planning and design of new buildings can have implications for energy consumption particularly in terms of the need for energy for lighting, heating and air conditioning. The Government in PPG 22: Renewable Energy encourages the development and use of energy from renewable sources- energy from the sun, wind, oceans and fall of waste; combustible or digestible industrial, agricultural and domestic waste materials are also regarded as renewable sources of energy. “A main advantage of using renewable energy is its contribution to limiting emissions of greenhouse gases (the gases which cause global warming)” (paragraph 5 PPG22). Although there may not currently be many opportunities for the development of renewable energy in this borough, as technology progresses, particularly in the area of photovoltaics, it is possible that energy could be produced on a wider scale in the borough. Development planning will encourage this where appropriate.

Telecommunications 4.17 Modern telecommunications are an essential and beneficial element in the life of the local community and in the national economy. Good communications can enrich the quality of life, and modern telecommunications can benefit the environment through reducing the need to travel, and hence reducing vehicle emissions of carbon dioxide and other pollutants. However they may have adverse impacts on the visual quality and character of the borough, and a balance needs to be achieved between telecommunications developments and local amenities.

Administration of waste collection and disposal Sustainable Waste Management

1994 paragraphs 4.18-4.20 replaced by altered text shown

The regulation of waste collection and disposal in London is the responsibility of the Environment Agency. The overall planning for waste management is the responsibility of the Greater London Authority. Waste is collected by councils or private contractors. Waste collected by councils is taken to a waste transfer station operated by a Waste Disposal Authority. Each authority disposes of waste for several councils. At present the majority of waste collected by this council is sent by river to a landfill site in Essex via the Western Riverside Waste Authority transfer station in Wandsworth. A new waste disposal contract starts in October 2002.

Waste planning authorities are responsible for ensuring that an adequate planning framework exists taking account of national and regional planning policy guidance (PPG 10: Planning and Waste Management, 1999). The council supports the principle of sustainable waste management as set out in the Government’s national Waste Strategy (2000). The borough will have regard to the London Mayor’s Waste

Chapter 4 79 London Borough of Hammersmith and Fulham: UDP Alterations

Strategy, due to be published in 2002, and will be subject to the Mayor’s powers of direction. Sustainable waste management means using material resources efficiently, both because such material can be finite and because of the environmental and economic costs in the disposal of waste. Where waste is produced it should be dealt with in a way that actively contributes to the economic, social and environmental goals of sustainable development. A key principle in considering waste management options is the Best Practicable Environmental Option (BPEO). Two additional principles (the waste hierarchy and the proximity principle) are important when assessing the BPEO. The waste hierarchy has as a first priority the reduction or minimisation of waste, followed by re-use and then the recovery of value from waste and finally the disposal of waste, usually to landfill.

The proximity principle suggests that waste should generally be disposed of as near to its place of production as possible. It not only helps raise awareness in the local community of the waste that they produce, but it recognises that the transport of wastes can have a significant environmental impact. The mode of transport and not just the distance is also important. A longer journey by rail or water may be environmentally preferable to a shorter journey by road.

Local planning authorities should identify both existing and where practicable, new or extended waste management sites. The principle such site for waste from this borough is located in Wandsworth on the opposite bank of the Thames. This allows for the transportation of waste by river to a landfill site in Essex. However it is soon to be expanded as a Materials Reclamation Facility (MRF) which will increase the amount of waste received which is then recycled and/or recovered for reuse before the residue is disposed of.

Recycling After waste minimisation and reuse the next tier of the waste hierarchy is recycling. However this is an important component both in terms of amounts of materials involved and in the opportunities to impact on the waste stream from domestic use in partnership with local communities. The EC Landfill Directive calls for a dramatic reduction in waste sent to landfill. The Government has set a target of 25% of household waste to be recycled or composted by 2005. By 2010 it intends to recover value from 45% of household waste, including 30% by recycling and composting (Waste Strategy 2000). The Government has stated that recycling and composting should be considered before the recovery of energy from waste. There are currently 51 ‘bring’ recycling sites in the borough, plus three new sites on housing estates. There are significant recycling operations in the borough involving scrap metal and cars, particularly in the Hythe Road area. There is a pilot multi- materials kerbside collection scheme in a part of the borough in addition to a kerbside collection of paper and card for all households with direct street access. The council is currently reviewing the Recycling Plan for the borough.

Land use policies can be used to encourage and facilitate the recycling of waste (PPG 10: Planning and Waste Management). New development or redevelopment sites will be required to provide for the storage and collection space for recyclables. Proposed local waste management facilities will need to pass numerous environmental including traffic tests if they are to be considered and then only on existing general industrial area. The new Materials Reclamation Facility at Smugglers Cove will provide for potential increases in materials to be separated and recycled.

Chapter 4 80 London Borough of Hammersmith and Fulham: UDP Alterations

The River Thames 4.21 The river is a major feature in the environment of the borough and London which gives rise to a special character along the riverside. Most All of the river and most of the adjoining riverside is now included in conservation areas (the only excluded area being Chelsea Harbour). The river contributes to the structure of the borough, as it loops around Fulham (enclosing an area within which substantial parts are liable to flooding because of the low level of the ground), and the bridges have a major effect on accessibility and land-use. The Thames Path National Trail follows the river and is a longer distance walking route that provides not only a leisure function, but also contributes to achieving a sustainable transport system. The Thames Path in this borough coincides with the riverside walk (see policy EN34) and links areas of open space, such as Bishops Park MOL and smaller open spaces with a riverside frontage.

4.22 Overall Hammersmith marks a zone of transition in the character of the river as it flows through the borough. On this borough's bank an older residential area stretches from Chiswick to Hammersmith Bridge. Downstream of that bridge the riverside character has changed recently to modern residential or business buildings. The important open spaces and recreational facilities of Craven Cottage, Bishops Park and Fulham Palace and Hurlingham Club follow with a short residential stretch near Putney Railway Bridge. Beyond Hurlingham Club the riverside is currently changing from industrial to an area of mixed-use including residential, a supermarket, a number of commercial premises and open space. The stretch upstream and downstream of Wandsworth Bridge contains the borough’s three cargo handling wharves. namely Swedish Wharf, Comleys Wharf and Hurlingham Wharf. The Secretary for the Environment, Transport and Regions has safeguarded these wharves specifically for the transhipment of freight, including waste and aggregates, and related activities. This is in furtherance of policies set out in the Strategic Planning Guidance for the River Thames (RPG3b/9b) published in 1997 which states that these sites should be retained and safeguarded against development that could preclude their future use for transhipment purposes.

4.23 Certain issues relating to the river and riverside arise very largely because of the opportunities and problems that come with the development of riverside sites. Firstly, such sites are attractive for residential and office use but the tendency is for developers to seek intensive development that may be out of character and spoil views along and across the river. Secondly, whatever the principal land use, when development is proposed there is often a need to improve access for local residents to the river, especially when this has been denied by the barrier effect of industrial uses in the past.

4.24 Other issues relate to enhancing the transport, recreation and nature conservation importance of the river, aspects where there are particular strategic implications. It is clear that conflict can exist between nature conservation and other uses of the river. Potential conflicts between nature conservation and uses of the river should be addressed at an early stage of all proposals, so that effects can be minimised, or mitigated and enhancements included. In addition, the river corridor is of London-wide historic importance, and the foreshore is of significant archaeological value.

THE POLICY CONTEXT

Chapter 4 81 London Borough of Hammersmith and Fulham: UDP Alterations

International policy

4.25 In June 1992, the United Nations Conference on Environment and Development (UNCED - "The Earth Summit") took place in Rio de Janeiro, where the achievement of sustainable development was the central theme. A key outcome was the general endorsement of Agenda 21, a global action plan for reconciling development, in a wide sense, and environmental concerns. Agenda 21 calls on governments to prepare national strategies for sustainable development and identifies local government as having a very important role to play.. The Framework Convention on Climate Change, signed at UNCED, will commit the UK and over 150 countries to return emissions of individual greenhouse gases to their 1990 level by the year 2000.

4.26 The European Union has approved a Fifth Action Programme on the Environment ("Towards Sustainability").. It sets out a framework for action by the public sector, the private sector and the EU with targets up to the end of the century. In some respects, the EU have given, or will give, legal force to targets by adopting new Directives or Regulations. Otherwise, national governments would be expected to bring forward legislation, or action should be taken by agencies, such as local government, within the ambit of their existing duties and responsibilities. EU member states made a commitment in June 1992 at Lisbon to produce national action plans for the implementation of Agenda 21 by the end of 1993.

European Policy 4.26a The European Union adopted in 1992 the Fifth Action Programme on the Environment (“Towards Sustainability”) which seeks to integrate environmental concerns into other policy areas in order to achieve sustainable development. Changes to the Treaty of Rome, agreed in the Treaty of Amsterdam, give sustainable development much greater prominence in Europe, by making it a requirement for environmental protection concerns to be integrated into EU policies.

National policy guidance on environmental issues 4.27 In 1994 the Government produced “Sustainable Development: The UK Strategy” in accordance with its commitment to produce a national action plan for implementing Agenda 21. A revised strategy “Better Quality of Life” was produced, in May 1999. A comprehensive national environmental strategy was published by the Government in 1990 as the White Paper entitled "This Common Inheritance" (Cm 1200). It provides a background to environmental issues and the basis for all local environmental strategies. It is supplemented by guidance on appropriate policies in PPG1, PPG10 Planning and Waste Management, PPG12, PPG13, PPG 22: Renewable Energy and in PPG23 on Planning and Pollution Control. The Government has now prepared the "UK Strategy for Sustainable Development" in accordance with its commitment to produce a national action plan for implementing Agenda 21.

4.28 Planning Policy Guidance Note 12 Development Plans and Regional Planning Guidance recognises that the planning system has an important role in achieving sustainable development: PPG12 (December 1999) paragraph 4.1 states that “The planning system, and development plans in particular, can make a major contribution to the achievement of the Government’s objectives for sustainable development.”

Chapter 4 82 London Borough of Hammersmith and Fulham: UDP Alterations

"The planning system and the preparation of development plans in particular can contribute to the objectives of ensuring that development and growth are sustainable. The sum total of decisions in the planning field, as elsewhere, should not deny future generations the best of today's environment. This should be expressed through the policies adopted in development planning." (PPG12 para. 1.8) The Town and Country Planning (Development Plan) Regulations 1991:

"requires authorities, for the first time, to have regard to environmental implications in preparing their general policies and proposals in structure plans and UDP Part Is." (PPG12 para. 5.52) The PPG goes on to indicate that: "Local planning authorities should take account of the environment in the widest sense in plan preparation." (PPG12 para. 6.3)

This not only includes traditional issues such as the built heritage and conservation areas, but PPG12 also states that:

"the challenge is to ensure that newer environmental concerns, such as global warming and the consumption of non-renewable resources, are also reflected in the analysis of policies that forms part of plan preparation". (PPG12 para. 6.3)

Later PPG12 in paragraph 6.16 4.4 states that:

“Development plans should be drawn up in such a way as to take environmental considerations comprehensively and consistently into account” and include

“energy conservation and the efficient use of energy, global climate change, and reduction in greenhouse gases (PPG22 on renewable energy, PPG13 on transport and reducing the need for travel)”:

"Development policies may also have an impact on the efficiency with which energy is used through their influence on the viability of combined heat and power schemes involving district heating networks, and through their influence on factors such as housing type, orientation and location." ( para. 6.16)

Transport and sustainable development

4.29 The importance of transport in sustainable development is recognised by PPG13 published in March 1994. Para. 1.3 notes:

"The location and the nature of development affect the amount and method of travel; and the pattern of development is itself influenced by transport infrastructure and transport policies. By planning land use and transport together in ways which enable people to carry out their everyday activities with less need to travel, local planning authorities can reduce reliance on the private car and make a significant contribution to the environmental goals set out in the Government's Sustainable Development Strategy."

PPG13 goes on to state: "Development Plans should aim to reduce the need to travel, especially by car ....." (PPG13 para. 1.7)

Chapter 4 83 London Borough of Hammersmith and Fulham: UDP Alterations

Environmental assessment 4.30 The Town and Country Planning (Assessment of Environmental Effects Impact Assessment) (England and Wales) Regulations 1988 1999 and Circular 2/99 and relevant re-enactments which gives guidance on the Regulations outline the types of development which require or may require an environmental assessment to be carried out. The types of development to which the Regulations apply are prescribed by Schedules 1 and 2. All cases falling in Schedule 1, except exempt development, the assessment procedure is mandatory; but in cases falling in Schedule 2 it must be complied with only where the development would be likely to have significant effects on the environment by virtue of factors such as its nature, size or location. No planning permission for such development can be granted by a local planning authority, the Secretary of State or an inspector, unless they have first taken “environmental information” into consideration. A set of indicative criteria and thresholds to guide local planning authorities in their determination of whether significant environmental effects are likely from the proposed development is also included. introduced provisions for carrying out the environmental assessment of certain categories of major schemes. In certain cases this is mandatory but the council can also decide, within three weeks of an application, that a scheme is likely to have significant effects on the environment by virtue of factors such as its nature, size or location, and can then require the developer to prepare an Environmental Statement. In the case of any development which is likely to have a significant effect on the environment (in accordance with the appropriate regulations), the council can require the developer to prepare an Environmental Statement so that the effects can be fully assessed as part of the consideration of an application.

National guidance on other issues 4.31 National policy guidance on other issues is provided by the Planning Policy Guidance Notes published by the Department of the Environment. Of particular relevance to this chapter is PPG1 which has an important Annex on Design and states that:

“Development plans should set out design policies against which development proposals are to be considered”

Also relevant are PPG16 on Archaeology and PPG17 on Sport and Recreation, which . This is particularly important in relation to the retention of open space and it states:

"The Government attaches great importance to the retention of recreational and amenity open space in urban areas" (paragraph 25)

"Open space, whether or not there is public access to it, is also important for its contribution to the quality of urban life" (paragraph 25)

4.32 In addition the most recent Planning Policy Guidance Notes on Tourism (PPG21); Renewable Energy (PPG22); Planning and Pollution Control (PPG23); Planning and Noise (PPG24); Nature Conservation (PPG9); and Planning and the Historic Environment (PPG15) provide additional guidance. Planning Policy Guidance Note 21 Tourism states in para. 1.2 that tourism policies:

Chapter 4 84 London Borough of Hammersmith and Fulham: UDP Alterations

"must be fully consistent with the Government's environmental strategy as set out in the White Paper "This Common Inheritance" and must take full account of the particular needs and character of individual areas".

Planning Policy Guidance Note 22 Renewable Energy makes it clear in paragraph 26 that planning authorities in considering renewable energy projects:

"will need to consider both the immediate impact of renewable energy projects on the local environment and their wider contribution to reducing emissions of greenhouse gases."

Planning Policy Guidance Note 23 Planning and Pollution Control recognises in paragraphs. 1.31 and 1.32 that the planning system: "has an important role to play in determining the location of development which may give rise to pollution", as well as controlling

"other development in proximity to potential sources of pollution".

The role of the planning system focuses on:

"whether the development itself is an acceptable use of the land, rather than the control of the processes or substances themselves".

The material considerations are likely to include: location, impact on amenity, risk and impact of potential pollution, prevention of nuisance, impact on traffic levels and surrounding environment, and need of subsequent restoration of land. (PPG23 paragraph 1.33)

The Planning Policy Guidance Note 9 Nature Conservation states that:

"Local plans and part 2 of unitary development plans should identify relevant national and local nature conservation interests. They should ensure that the protection and enhancement of those interests is properly provided for in development and land use policies"; and the Plan should also be concerned with:

"other land of conservation value and the possible provision of new habitats".

4.33 The Government's national planning policy is also set out in Department of the Environment, Transport and the Regions (DETR) Circulars. These set out Government policy on how councils should determine planning applications, and the importance to be attached to particular issues, especially for example questions of aesthetics (Circular 31/85 Aesthetic Control). There is however a very clear signal, repeated in PPG1 and In accordance with Section 54A of the Town and Country Planning Act, that planning permission should normally be granted if the application is in accordance with the Plan, and that public interest and aesthetic opinions are only two of the issues to be considered. The council should not give either undue weight (PPG1 including Annex A). However Design issues are accorded greater weight in PPG1 than in previous Government guidance. There is a clear assertion that design, especially civic design, is a matter of proper public interest and should be given due weight. The Planning (Listed Buildings and Conservation Areas) Act 1990 sets out an additional system of controls for listed buildings and conservation

Chapter 4 85 London Borough of Hammersmith and Fulham: UDP Alterations

areas. Advice on the operation of listed building and conservation controls is given in PPG15 Planning and the Historic Environment.

Regional planning guidance 4.34 The Department of the Environment published in March 1994 2001 Regional Guidance for the South East. It notes that two objectives of sustainable development, as set out in the Strategy for Sustainable Development in the UK, are effective protection of the environment and prudent use of natural resources. The RPG has a vision that includes “… a higher quality of environment with management of natural resources … and a more sustainable pattern of development”. places greater emphasis on environmental issues and it states as one of its main objectives in para. 1.8:

"One of the challenges facing the South East is to achieve development that is compatible with the objectives of sustainable development. This requires an approach to providing for development which avoids damage to the global, regional and local environment or helps to improve that environment"; and in para 4.1 that the following environmental objectives apply to the South East:

* "to encourage development patterns which help us to use energy efficiently and to meet announced targets for reduced emission of gases causing global warming, ozone depletion and acid rain;

* to conserve our heritage, and to protect and enhance our environment at the same time as ensuring that the planning system provides for homes and jobs and the encouragement of a healthy economy;

* to improve the quality of life in London and throughout towns in the Region;

* to maintain Green Belts, to protect areas of natural beauty and to maintain and enhance wildlife habitats"; and continues in para. 4.2:

"Local authorities are also expected to draw up their development plans on the basis of these objectives."

London-wide Strategic Guidance 4.35 RPG 3 provides Strategic Guidance for London. It in fact predates "This Common Inheritance" and is to some extent therefore out-of- date. Environmental issues are tackled in a rather cursory piecemeal fashion towards the end of the document. Strategic Guidance (RPG3) emphasises the importance of the river (para. 80) and Metropolitan Open Land, which has the same presumption against development as the Green Belt (paragraphs. 60-61). Other open land is also important especially where it can form part of a Green Corridor or Chain (paragraphs. 62-63). It endorses policies for nature conservation, flood prevention and surface water drainage, conservation of the built environment, important views and archaeology (paragraphs. 66 and 68-71). Waste disposal is mentioned in para. 82 but this is particularly up-dated by the White Paper. Only one view affecting this borough is identified as having strategic importance: this is from Richmond Park to St. Paul's Cathedral and would only be interrupted by very tall buildings in parts of Fulham. The RPG states that:

Chapter 4 86 London Borough of Hammersmith and Fulham: UDP Alterations

“it is essential to protect and improve the quality of the environment in order to maintain London’s attractiveness and competitiveness”.

Strategic Guidance endorses the three principles of sustainable waste management and states that boroughs should set out policies to achieve these principles. RPG3b/9b Strategic Planning Guidance for the River Thames sets out the Government’s overall objectives for the Thames which include:

• maintaining and improving the quality of the built environment • restoring and promoting the vitality of the riverside • conserving and enhancing the natural and historic environments • encouraging the use of the river and riverside for transport and recreation purposes.

LPAC Strategic Advice 4.36 The Strategic Advice submitted by LPAC to the Secretary of State provides a valuable detailed supplement to the Government's Strategic Guidance for London. LPAC prepared by LPAC recognised the importance of the inter-relationship of the environment to other policies. Specific polices are set out for the following major areas: • Metropolitan Open Land, Open Spaces and Green Chains • Nature Conservation • River Thames • Areas of Special Character and Archaeology • High Buildings, Skylines and Views

4.37 LPAC’s has submitted 1994 Advice on Strategic Planning Guidance for London to the Secretary of State. This recommends "sustainability" as a "cross-topic link" through all policies.

Other Agencies 4.38 Other agencies have provided important advice for inclusion in environmental policies, often in the form of model policies, e.g. the National Rivers Authority Environment Agency, the Western Riverside Waste Authority, the Sports council, the Countryside Commission Agency, English Nature, the London Ecology Unit, English Heritage and the Museum of London.

STRATEGY

4.39 It is clear that The Government now recognises the importance of the whole range of environmental issues and the linkages between local and global problems. With regard to planning powers, the legislation, regulations and guidance to deal with protection and enhancement of the built environment and major open spaces, the effect of intrusive land uses, and protection of residential amenity are well established. PPGs identify the need for the planning system to contribute to ensuring that development and growth are sustainable, and in particular, to have regard to energy conservation and the relationship of new development to traffic generation. SERPLAN and LPAC also stress the wide range of environmental issues that should be tackled.

Chapter 4 87 London Borough of Hammersmith and Fulham: UDP Alterations

4.40 The council believes the Unitary Development Plan should take as strong a line as possible in tackling the whole range of environmental issues, and should look towards ensuring that development is sustainable, to the extent that this is possible through the use of planning powers.

Areas and buildings of special character 4.41 Conservation area legislation and Strategic Guidance (paragraph 69 8.8) requires councils to identify which parts of their area should be designated as conservation areas, where it is desirable to preserve or enhance the special architectural or historic interest of the area. The designation of a conservation area is not part of the UDP process but the UDP sets out policies to preserve or enhance these areas that have been designated in the borough (as shown on the Proposals Map).

4.42 Strategic Guidance (paragraphs. 70 & 80 plus letter from DoE to London boroughs dated 16 August 1989) requires protection of strategic views and local views. The policies in Part 1, supplemented by the detailed policies of Part 2 of the UDP, are designed to fulfil these requirements. The UDP also contains policies for high buildings which are an essential part of policies for areas of special character, and policies for views, even though there is no specific reference to high buildings in Strategic Guidance.

4.43 Strategic Guidance (para. 71) provides for protection of Ancient Monuments and archaeological sites. The policies in the Plan are set out in greater detail based on the Planning Policy Guidance Note 16 on Archaeology published since Strategic Guidance. The council will take expert advice from English Heritage.

Design of new developments 4.44 Strategic Guidance contains little on the important issues of the design of new developments, equal accessibility for all, and the needs of people with disabilities. The council's policies in the UDP give these subjects the importance they deserve. The UDP policies take account of the White Paper "This Common Inheritance" (especially para. 8.26 et seq.), and advice from organisations representing people with disabilities, and aim to provide stronger guidance on the factors that should be taken into account. It must be recognised, however, that the Government's view is that councils shall not attempt unduly to control the aesthetics of new buildings. Government Guidance as set out in PPG 1 (Planning Policy Guidance: General Policies and Principles ) gives fresh emphasis on design and updates the guidance on the role of design considerations in planning, particularly in the light of the Government’s Quality in Town and Country initiative. It also advises that development plans should set out design policies against which development proposals are to be considered. The council, in accordance with Government Guidance, therefore aims to support good and appropriate design which is sustainable, improves the quality of the existing environment, reinforces a sense of place and promotes civic pride. The council’s policies are not to stifle responsible innovation, originality or initiative, provided that any proposal can demonstrate that proper account has been taken of urban design issues, and that any proposed development reinforces local character and distinctiveness.

4.44a The council believes that an urban renaissance, and the regeneration of the borough, requires that good design should be the aim of everyone involved in the development process. Thus, every intervention must contribute to an attractive and

Chapter 4 88 London Borough of Hammersmith and Fulham: UDP Alterations

sustainable environment. It is considered that the appearance of new development, be it large or small, new developments, individual new buildings, or small extensions or alterations to existing buildings, will have a significant effect on the character and quality of an area. The appearance of development and its relationship to its surroundings is therefore a matter of proper public interest and a material consideration in determining planning applications and appeals.

Open space 4.45 The importance of open spaces including Metropolitan Open Land, green chains, other parks and sport and recreation is recognised by Strategic Guidance RPG3, The requirements are supplemented by the White Paper (paragraphs. 6.47 & 8.7 -8.8),by the PPG 17 on Sport and Recreation, and the draft PPG 17 Sport, Open Space and Recreation and by LPAC's Strategic Advice. The UDP policies are consistent with Strategic Guidance, and are formulated in accordance with the detailed advice in the other documents quoted. The policies seek to establish a structure of open space, from the strategic level of MOL and longer distance walking routes to the open spaces of borough-wide and open space of local importance. In addition, specific attention is given to the provision of children’s play areas which are deficient in this borough. The policies seek to protect existing open space from the pressures of competing land uses, because once built on it is likely to be lost forever. The policies and proposals of the Plan promote the provision of additional, as well as the enhancement of existing, open space in all development proposals so as to meet borough needs.

Nature conservation 4.46 Strategic Guidance stipulates that UDPs should include policies on nature conservation, and refers to sources of supplementary guidance. The policies of the UDP take a comprehensive view of nature conservation issues at a strategic and local level, in terms of protection and enhancement, and new provision.

Resource conservation 4.47 Waste disposal is mentioned briefly in Strategic Guidance, but not recycling or energy conservation. These subjects are tackled more thoroughly in "This Common Inheritance", in PPG12 and the Environmental Protection Act 1990. The UDP policies are consistent with these, but are considerably more detailed. They draw on best practice and advice from the council's own Environmental Protection Teams and other responsible specialist organisations, such as Friends of the Earth. Sustainable waste management, energy, water and resource conservation are all recognised as important issues which should where appropriate, be addressed through development plan policies

The River Thames 4.48 Strategic Guidance recognises the importance of the river for transport and for recreation. It also stresses the need for flood prevention measures. Unfortunately Strategic Guidance is not clear on whether the river should be further protected by designation as either Metropolitan Open Land or an Area of Special Character (including the Countryside Commission's Heritage Land).

4.49 The UDP Proposals Map identifies the Thames Policy Area within this borough, including the river, riverside and areas with strong riperian links. The UDP follows Strategic Guidance and advice of other relevant organisations in including

Chapter 4 89 London Borough of Hammersmith and Fulham: UDP Alterations

includes policies on river transport, river-based recreation and flooding. Policies are also included to implement the view of the council that the river and riverside should be treated as an Area of Special Character. In addition all of the river and the majority of the riverside have been designated as conservation areas.ensure that the character of the Thames Policy Area is preserved and that any development is appropriate, sympathetic and of a high quality, taking account of the river and riverside as a whole.

4.48 In accordance with RPG3b/9b Strategic Planning Guidance for the River Thames, the council has identified and designated its part of the Thames Policy Area which is shown on the Proposals Map. The Thames Policy Area consists of the river, riverside and areas with strong riparian links. The policies within the Plan have been formulated to take particular account of the river as a strategic resource, its importance to London as a whole, and to achieve a consistent approach to policy formulation among riparian boroughs, bearing in mind the need to also reflect local circumstances. The policies that apply to the Thames Policy Area are in addition to, rather than instead of, those elsewhere in chapter 4 and elsewhere in the Plan that have a bearing on the river and riverside. The policies

4.49 Within the Thames Policy Area, development proposals will need to be of a high quality design and when adjoining the river will need to provide or enhance sections of the riverside walk. Development should protect and enhance important local views, landmarks and historic structures as well as open space and ecological interests. In respect of the river the council will promote and encourage provision of passenger and freight transport and will safeguard wharves identified by the Secretary of State. Recreational use of the river and riverside for water based activities will be encouraged and policies will protect existing facilities and infrastructure, and control moorings in the river. All developments will also be considered against risks of flooding.

4.49a In addition to UDP policies, the council has adopted as supplementary planning guidance to the Plan the Thames Strategy - Kew to Chelsea. This provides detailed design guidance that supplements the Part 2 policies in the UDP.

THE BUILT ENVIRONMENT - PROTECTION OF EXISTING CHARACTER

EN1 CONSERVATION AREAS

1994 Policy EN1 deleted and EN2 enhanced

EN2 DEVELOPMENT IN CONSERVATION AREAS

When considering any developments, including alterations or additions to existing buildings, within a conservation area the council will pay special attention to the need to preserve or enhance the character and or appearance of that area.

Development within conservation areas, including alterations or additions to existing buildings, will only be permitted if the character or appearance of the conservation area is preserved or enhanced. Particular regard will be given in

Chapter 4 90 London Borough of Hammersmith and Fulham: UDP Alterations

the design of new developments to details such as the scale, massing, bulk, height, materials, colour, vertical and horizontal emphasis, and the relationship to adjoining buildings, the street building line and open spaces. New developments in conservation areas must, where possible, respect the historic context, volume, scale, form, materials and quality. These will be matters of particular importance to the historic context.

4.51a. The character of a conservation area will be derived from the individual buildings within it, their relationship to each other, and the spaces between them; from the townscape in its broadest sense; from the interrelationship between the public realm, open spaces and the built form. The character of the conservation area may be uniform, or, in larger conservation areas, may vary within its boundaries. The character may also be defined by its land uses and by its archaeological potential.

The council has a legal duty from time to time to draw up policies for the preservation and enhancement of a conservation area. The council is also preparing Character Profiles for each conservation area. These will provide general information on the character and appearance of the conservation areas that the council would wish to preserve and enhance and broad design guidance for the conservation areas. These, give guidance to those wishing to carry out works in the areas. The Character Profiles are supplementary planning guidance. To safeguard the character of some areas, control over developments normally not requiring permission may be necessary. Where appropriate, Article 4 Directions will be made, subject to the Secretary of State’s approval where necessary, restricting development rights granted by the General Permitted Development Order. Areas to which Article 4 Directions apply for this reason are listed in Appendix 4.2.

The special character of the conservation areas makes it essential that new development accords with their special architectural and visual qualities. The Conservation Area Profiles will assist in interpreting the scale, massing, height and alignment of development and also the finer grain elements such as vertical and horizontal rhythms, materials and decorative or architecturally important features. Reference will also be made to street building lines and local building traditions, where appropriate. New buildings will not necessarily be required to copy their older neighbours, although there will be places where a facsimile development will be appropriate. The aim should be to promote high quality design which contributes positively to the area, harmonising the new development with its neighbours in the conservation area. This would allow for modern design and imaginative approach in some cases, where this is considered to be appropriate.

The council recognises the important effect that street furniture and the treatment of roads and pavements has on the character and appearance of conservation areas. It is concerned to ensure that discretion is used in the provision and siting of street furniture in order to avoid any detriment to the street scene, and to ensure that high quality design and materials are used for the floorscape in these sensitive locations. The council has published a “Highway Materials and Street Furniture Guide” which provides comprehensive design guidance and promotes a co-ordinated approach to such matters.

The council will require applications for planning permission, whether outline or full, to be in sufficient detail for a judgement to be made in relation to the impact of the proposal on the character and appearance of the adjoining buildings and street scene and the conservation area as a whole. It is important, therefore, to be able to assess any proposal not just as a separate entity but as part of that area. For this

Chapter 4 91 London Borough of Hammersmith and Fulham: UDP Alterations

reason an outline application without any details is unlikely to provide sufficient information. In some circumstances details can be considered when an application for reserved matters is made following the grant of an outline permission, but the council's view is that in conservation areas this would be likely in many cases to prejudice the proper consideration of that outline application. It will, therefore, require an appropriate level of detail when applications are made taking into account the particular character or appearance of the area and the location and nature of the proposal. The council has statutory powers to ask for additional details within one month of the lodging of a planning application, if these are necessary to enable it to make a decision.

EN2A APPLICATIONS FOR DEVELOPMENT IN CONSERVATION AREAS

Consequently the council will require applications for planning permission, whether outline or full, to be in sufficient detail for such a judgement to made in relation to the character of the area. Particular regard will be given to the need for details which show, for example, the massing, bulk, height, materials, colour, vertical and horizontal emphasis, and the relationship to adjoining buildings.

4.52 In considering whether a development proposal in a conservation area should be permitted, the council must consider whether the scheme would preserve or enhance the character or appearance of the area. It is important, therefore, to be able to assess any proposal not just as a separate entity but as part of that area. For this reason an outline application without any details is unlikely to provide sufficient information. In some circumstances details can be considered when an application for reserved matters is made following the grant of an outline permission, but the council's view is that in conservation areas this would be likely in many cases to prejudice the proper consideration of that outline application. It will, therefore, require an appropriate level of detail when applications are made taking into account the particular character or appearance of the area and the location and nature of the proposal. The council has statutory powers to ask for additional details within one month of the lodging of a planning application, if these are necessary to enable it to make a decision.

EN2B VIEWS IN CONSERVATION AREAS EFFECT OF DEVELOPMENT ON THE SETTING OF CONSERVATION AREAS AND VIEWS INTO AND OUT OF THEM

Development (including development outside conservation areas) will only be permitted if the character or appearance of the conservation areas in terms of their setting and views into or out of them is preserved or enhanced. 4.52a Views are a key element in the townscape and setting of conservation areas, and in the definition of their special character. Development should not negatively impact upon the quality of important views by obscuring them, introducing inappropriate elements to the foreground or background or affecting the townscape composition within. Important views in conservation areas are defined in the relevant Conservation Area Profile.

EN2C FACADISM IN CONSERVATION AREAS

Chapter 4 92 London Borough of Hammersmith and Fulham: UDP Alterations

Development proposals that retain only the facades of existing buildings in conservation areas will not be permitted unless: a) The remaining fabric of the building is no longer capable of beneficial use and is beyond repair; and b) The proposed development would preserve or enhance the character or appearance of the conservation area; and c) The redevelopment fully integrates the retained façade within the design, use and appearance of the building; and d) The floor levels and internal subdivision of the building reflect the scale, design and proportions of the façade when viewed from the street during the hours of daylight and night time darkness with particular regard to the effect of light from both internal and external sources.

4.52b The complete demolition of a building behind the façade will require Conservation Area Consent and is generally discouraged. However where the façade of the building is an important element in the townscape and contributes to the character of the conservation area, and there are no alternatives to safeguard the future of the building, and Consequently the streetscape, this type of development will be considered having regard to the policy criteria.

EN2D DEVELOPMENT AFFECTING HISTORIC PARKS AND GARDENS

Development will not be permitted if it would cause demonstrable harm to the character or appearance of sites included in the English Heritage Register of Parks and Gardens of Special Historic Interest.

4.52d English Heritage have a Register of Parks and Gardens of Special Historic Interest and though this does not result in additional statutory controls it is a material consideration which must be taken into account when determining planning applications. The spaces on the Register in this borough are shown on the proposals map and are:

Bishops Park, Fulham Grade2* Fulham Palace Garden Grade 2* St Peters Square, Hammersmith Grade 2

4.52dd Historic parks and gardens are of value for the evidence they provide of the development of gardening and landscape appreciation and design. Any proposals affecting them should be based on an understanding of the various stages of their history, of the associated design intentions, and of the significance of surviving features and views, including views beyond the site. The objectives of the designation are:

• to ensure that the features and qualities which make gardens and landscapes of national importance can be safeguarded, • to increase awareness of their value and to encourage those who own, manage, or protect them to treat these places with care.

Chapter 4 93 London Borough of Hammersmith and Fulham: UDP Alterations

EN2E OPPORTUNITY SITES IN CONSERVATION AREAS

Opportunity sites are areas within the conservation area which would benefit from improvement by repair, restoration, or in some cases by redevelopment. The council will encourage the improvement of opportunity sites in conservation areas.

4.52e These sites are identified in the Conservation Area Character Profile for each conservation area. The council has identified these sites as they are considered to contribute little or detract from the character and appearance of the conservation area. It is the aim of the council that appropriate works be undertaken to enhance these sites so that they contribute positively to the character and appearance of an area.

EN3 LISTED BUILDINGS

The council will protect buildings of special architectural or historic interest which are contained in the Department of Environment's statutory list. The presumption in favour of preserving listed buildings will be reflected by not normally permitting their demolition, nor will alterations or extensions to them be permitted where their special architectural or historic interest would be adversely affected. Permission will not normally be granted for any development which would not preserve the setting of any listed building. Further buildings may be recommended to the Department of the Environment for listing.

4.53 The council considers the historical character and architectural heritage of the borough should be preserved for future generations and is especially concerned that all buildings recognised by the DoE as Buildings of Architectural or Historic Interest are protected (see Appendix 4.6). The council has a statutory duty to consider whether proposed alterations to a listed building are acceptable, and therefore merit a listed building consent. English Heritage has the power to direct the council to refuse listed building consent. In all cases its views will be sought on such proposals. Listed building consent is required for any material alterations to the interior of these buildings, as well as to the exterior. The setting of a listed building is often an essential feature of its character, as PPG15 Planning and the Historic Environment points out (paragraph 2.16).

EN4 USE AND MAINTENANCE OF LISTED BUILDINGS

The council prefers owners of listed buildings to use them for the purposes for which they were originally built. However, where this can be proved to be no longer possible and all efforts to continue the original use have failed, the council may consider other uses which are appropriate to their appearance, character and associations. All listed buildings should be properly maintained. Where appropriate the council will encourage the owners of listed buildings to allow public access to those buildings. The council will promote access to public listed buildings for all those people with disabilities.

4.54 No specific powers other than normal planning controls are available to regulate the use to which listed buildings are put, but the council considers that it is

Chapter 4 94 London Borough of Hammersmith and Fulham: UDP Alterations

important that these buildings should not be used in a manner which is harmful to their character. It will therefore take every opportunity to persuade those involved to co-operate in finding appropriate uses and may in certain circumstances be prepared to allow a use that would not normally be approved on other policy grounds, provided this will protect the character of the building. The council expects the owners and/or users of listed buildings to play their part in their upkeep, and will use its legal powers to ensure proper maintenance of buildings and their settings. Current financial constraints on the council mean that grants or loans towards the repair and upkeep of an historic building are not available.

The council wishes to promote simple and uncomplicated access, into and around listed buildings. The goal is for people with disabilities or mobility problems to use property in the same way as everyone else in an easy dignified manner. This will call for creative and sensitive solutions though there may be cases where a compromise solution is necessary.

EN5 THE LOCAL REGISTER OF BUILDINGS OF MERIT

1994 Policy EN5 deleted and EN6 enhanced

EN6 POLICIES FOR BUILDINGS ON THE LOCAL REGISTER BUILDINGS AND ARTEFACTS OF LOCAL IMPORTANCE AND INTEREST

In Conservation Areas consent to demolish buildings is required and the council will not normally consider it appropriate to permit demolition of Buildings of Merit. Elsewhere, the council will encourage the retention of buildings on the Local Register. In the case of alterations to any of the buildings on the Local Register the council will expect proposals to be sympathetic in scale, character and materials. Every effort should be made to protect the facades of terraces, parades or groups of buildings, especially the rooflines and any architectural detailing which adds to the character of the building, terrace or area.

Development will not be permitted if it would result in the demolition, loss or harmful alteration to buildings, structures and artefacts that are of local townscape, architectural or historic interest, including all buildings identified on the council’s Register of Buildings of Merit contained within Supplementary Planning Guidance unless

1. a) The building or structure is no longer capable of beneficial use, and its fabric is beyond repair; or

b) The proposed replacement would bring substantial benefits to the community and which would decisively outweigh the loss; and

c) The proposed development cannot practicably be adapted to retain any historic interest that the building or structure possesses; and

d) The existing building or structure has been fully recorded; and

Chapter 4 95 London Borough of Hammersmith and Fulham: UDP Alterations

2. In the case of artefacts, they cannot practicably be retained in situ or, failing that, retained for re-use elsewhere within the site.

1994 paragraphs 4.55 and 4.56 replaced by altered text

The council wishes to encourage the retention of the architectural, townscape and historic character of the borough. There are many buildings in the borough, in addition to the listed buildings, which are of merit and which contribute to the character of the locality because of their townscape value, architectural quality, or historic associations. These buildings and artefacts are included in a Local Register. Most buildings on the register have been selected through external inspection on the basis of their architectural character and/or their contribution to the visual quality of the street scene. However, there may be instances where buildings have a valuable interior. Proposals to add to, or in exceptional cases remove buildings from the Local Register may be put forward from time to time, in consultation with the relevant amenity societies. Furthermore the council may recommend that particular buildings on the Local Register should be added to the Statutory National List of Buildings of Special Architectural or Historic Interest

Many terraces, parades and other groups of buildings make an important contribution to the townscape of the borough which is greater than the individual importance of each building. Every effort should be made to protect the facades of terraces, parades or groups of buildings, especially the rooflines and any architectural detailing which adds to the character of the building, terrace or area.

Locally important buildings are of value in terms of townscape, architectural or historic interest, and it is especially important that they shall not be demolished. Any alterations should only be carried out in a way that respects the scale, character and materials of the building. Within conservation areas, there are statutory controls over the demolition of buildings and consent is normally required. Outside conservation areas specific consent for demolition or alteration is not normally required. Nevertheless, locally important buildings should be protected because they contribute to the character and heritage of the borough. Both within and outside conservation areas, proposals for demolition or alteration should have particular regard to the effect of that demolition if the building is part of a terrace, parade or group because the consequences of demolition or unsympathetic alteration could be detrimental to the value of that group.

EN7 ARCHAEOLOGICAL SITES NATIONALLY AND LOCALLY IMPORTANT ARCHAEOLOGICAL REMAINS

1994 Policy EN7 replaced by altered text shown below

1. There will be a presumption against proposals which would involve significant alteration of, or cause damage to, Archaeological Remains of National Importance, whether scheduled or not, there will also be a presumption against proposals which have a significant and harmful impact on the setting of visible Archaeological Remains of National Importance whether scheduled or

Chapter 4 96 London Borough of Hammersmith and Fulham: UDP Alterations

not

2. Development affecting sites of Archaeological Remains of Local Interest and their settings will only be permitted if the need for the development outweighs the local value of the remains.

3. Applicants will be required to arrange for archaeological field evaluation of any such remains within the archaeological priority areas defined on the proposals map before applications are determined or if found during development works in such areas or elsewhere. Proposals should include provision for the remains and their settings to be protected, enhanced or preserved. Where it is accepted that physical preservation in situ is not merited, planning permission may be subject to conditions and/or formal agreement requiring the developer to secure investigation and recording of the remains, and publication of the results.

4.57 Archaeological remains are regularly discovered in the borough, from prehistoric Roman, Saxon, medieval and the early industrial period. The most recent find was part of a Saxon settlement discovered in Fulham Reach in 1990. They are a major part of the surviving evidence of the borough's past, and therefore a valuable and irreplaceable asset to the community. Such remains are very vulnerable to modern development, and once destroyed they are lost forever. The need to preserve them is recognised as a material consideration when determining planning applications. PPG 16 indicates that there will be a presumption in favour of preservation in-situ, where the remains are of national importance. In other cases this is desirable, but must be weighed against other factors. These will include the need for the proposed development, as well as the potential national importance of remains that may be found in the Archaeological Priority Areas. It is therefore desirable important for developers to consult English Heritage at an early stage, particularly for developments in or near the Archaeological Priority Areas.

4.58 New buildings will normally destroy any archaeological remains and therefore these should be excavated by a qualified archaeological unit before work commences. This is because the context of any archaeological find is an essential part of the historical value of any remains. The council considers it is reasonable for a person thus threatening part of the community's heritage to fund adequate excavation, the subsequent academic and popular reports, as well as publicity both for the excavation and the reports. The council will encourage developers to inform local archaeological societies of the start of any archaeological excavation and to make arrangements for public viewing of excavations in progress, wherever possible, and for subsequent analysis, interpretation and presentation to the archaeological societies and the public of any archaeological results and finds. The council welcomes the value to all parties of the Code of Practice drawn up by the British Archaeologists' and Developers' Liaison Group setting out mutual responsibilities.

DESIGN POLICIES FOR THE BUILT ENVIRONMENT

EN8 DESIGN OF NEW DEVELOPMENTS

The physical character of a proposed building should respond to that of the surrounding area. It should take account of its scale and historical context, and recognise the importance of landmarks, the local street pattern, local places, facades, views and vistas.

Chapter 4 97 London Borough of Hammersmith and Fulham: UDP Alterations

Development will not be permitted unless it is of a high standard of design, and compatible with the scale and character of existing development and its setting. The use of innovative and contemporary materials will be welcomed, provided these enable the design to be sensitively integrated into the existing built form and landscape. All proposals must be formulated to respect: a) The, historical context of the area and its sense of place; and b) The scale, mass, form and grain of surrounding development; and c) The relationship of the proposed development to the existing townscape, including the local street pattern and landmarks and the skyline and skyspace; and d) The prevailing rhythm and articulation of frontages; and e) Local building materials and colour; and f) Locally distinctive architectural detailing; and g) Sustainability objectives; and h) The principles of good neighbourliness

4.59 The borough is already intensely developed, but its character changes markedly from area to area as discussed in Chapter 3. Common concerns, such as daylighting, overlooking and privacy, may properly be the subject of fixed borough- wide standards. However, urban design considerations such as the height and bulk of buildings, the alignment and elevational treatment of building facades, the disposition and treatment of spaces around buildings and the wider visual impact of developments, will apply in different ways in different areas, dependent on their own particular character.

4.60 For this reason, it would not be appropriate to limit all development in the borough to a set height or to fix rigid and detailed design controls for general application. There needs to be a balance between the scope for design freedom and the need for neighbourliness. In some areas (most conservation areas, for instance), the latter will always predominate; in others, there may be greater latitude for individual expression. Change in most areas should be gradual, with large scale comprehensive redevelopment being allowed only in exceptional circumstances. The council is committed to excellence in urban design in all new development within the borough. This includes consideration of both buildings and open spaces and the relationship between the two; a balance between the need for neighbourliness and the scope for design freedom. New development should embrace sustainable principles and contribute positively to the public domain at all levels; improving legibility and permeability, respecting the overall height and form of neighbouring development, its massing as well as its rhythm and articulation of facades.

4.62 Visual variety and interest in an area often stem from the existence of a range of uses. Developments should be designed so as to encourage a variety of compatible uses in an area, thus increasing its vitality. As far as possible, the potential for easily adapting a building for other uses should be a consideration in its design.

Chapter 4 98 London Borough of Hammersmith and Fulham: UDP Alterations

4.61 Buildings should have a visual identity appropriate to their location and intended use. A new development should make visual sense to the people who are to use it. It should be designed to help people to identify its spaces and routes.

The council will encourage development which visually enhances the borough, and avoids harm by ensuring that the bulk and massing of schemes are appropriate in relation to the surroundings. In the general assessment of bulk and massing, full consideration will be given to amenities of neighbouring properties against planning Standards S3, S12 and S1.

Views within the borough are key elements in determining the character of the townscape and contribute to the interest of areas. The council will seek to ensure that proposed development does not harm these views in terms of location, scale and massing. The council will ensure that significant views in and out of conservation areas shall be safeguarded (see EN2B). Development along the riverside has great prominence due to the openness of the location and should therefore be of the highest quality. The council will ensure that development which affects the River Thames pays due regard to the riversides’ distinctive character, and is of a bulk, massing, scale and appearance which is appropriate to its surroundings. (see also EN31)

4.61a All the above criteria must be considered in relation to the existing fabric of the borough and in particular the context of the development site. Much of the borough is of a traditional character reflected in the number of conservation areas. The finer grain and traditional form of much of the borough requires a particular design approach and in many streets there is a strong pattern of development in existence which derives much of its character from the uniform appearance of the streetscape.

4.63 New buildings should not normally depart from the general pattern of existing streets, building bulk and height already existing in the area. High buildings will need specific justification (see policy EN9). This does not necessitate a pastiche or backward looking approach to design, and the council welcomes imaginative quality solutions for the development of sites. A balance is required and a sensitivity to the locale to generate an appropriate design which will enhance the townscape.

4.64 In conservation areas the style, design, location and amount of street furniture (e.g. lamps, bollards, benches, bins), should, where possible, be harmonious with and enhance the character of the street scene. Outside conservation areas care should be taken to ensure a high standard of design. Where possible, a reduction of unnecessary street furniture (such as posts and signs) should also be sought.

In its consideration of proposed new development, the council will evaluate the scheme against relevant sustainability issues which might include energy efficient means of construction for the development itself, and in terms of accessibility, the promotion of more energy efficient forms of transport (see policy EN16).

PPG1 Annex A states that all applications should be supported by a statement which should set out the design principles adopted and how the proposals relate to their immediate and wider setting. The council believes this to be important in ensuring a high standard of design in all new development

Chapter 4 99 London Borough of Hammersmith and Fulham: UDP Alterations

EN8B DESIGN OF EXTENSIONS

The council will require a high standard of design in all extensions and alterations to existing buildings. These should be compatible with the scale and character of existing development, its neighbours and its setting. In most cases, these will be subservient to the original building. In considering applications the council will take into account the following: i) scale, form, height and mass ii) proportion iii) vertical and horizontal emphasis iv) relationship of solid to void v) materials vi) relationship to existing building, spaces between buildings, and gardens vii) good neighbourliness

4.64b The design of extensions or alterations to buildings is of considerable importance. Extensions and alterations can change the character of individual buildings and that of an area as a whole. This is of particular concern in terraces of uniform appearance. The council recognises the changing needs and requirements of occupiers , but seeks to ensure that extensions and alterations, even the most minor ones, do not affect the inherent qualities of existing properties.

4.64 Extensions should never dominate the parent building in bulk, scale, materials or design. Normally the most appropriate solution will be to use a traditional design employing the existing architectural vocabulary and materials, ensuring that any new work is integrated harmoniously with the character of the building as a whole. However, there may be exceptional circumstances (such as where there is a wide range of architectural dates and styles) where more modern solutions may be acceptable, although these should be fully justified. Full width extensions would not normally be appropriate, and should comprise no more than half the width of the rear of the house and should not rise higher than one storey beneath the original main eaves or parapet line. Where a distinct rhythm of rear extensions exists any new proposals should follow the existing scale and character. Extensions should comprise no more than half the width of the rear of the property and should not rise higher than one storey beneath the original main eaves or parapet line. Where a distinct rhythm of rear extensions exists any new proposals should follow the existing scale and character. With respect to local context, it will be essential that the design of proposed extensions recognises and safeguards the amenities of the neighbouring properties, and other properties most directly affected by the proposal (see also S3,S6,S9, S10, S12 and S13). EN8C LEGIBILITY OF TOWN CENTRES

In town centres in particular, the council will encourage all developments that enhance the legibility, permeability and accessibility of the environment.

4.64c Quality urban design within the borough is a priority for the council. It is important that all groups and individuals understand what opportunities are available to them and that these are easily identifiable. Developments can achieve this through allowing views through sites, relating to their context and marking corners or important routes with landmark features or through the articulation of other elements of the design. In town centres, in particular, where people obtain many of the

Chapter 4 100 London Borough of Hammersmith and Fulham: UDP Alterations

services important to quality of life, it is important for legibility to be given detailed attention in development schemes.

EN8D SHOPFRONTS

The council will require a high standard of design in all new and altered shopfronts, both within and outside conservation areas. Where a complete or substantially complete original shopfront remains, the council will expect it to be retained, repaired and restored.

The council will discourage the use of all external security shutters and roller blinds.

Any signs and advertisements must be properly related to the design of the building, in scale, materials and location, in order to ensure that they do not detract from its character.

4.64d Shop fronts should not be designed in isolation, but considered as part of the whole building. Original shopfronts are of value as historic records and generally relate well to the buildings in which they are sited and provide a fine grain and richness to the townscape. The council will therefore resist the removal of such features.

4.64e Modern shopfronts of a quality design will be supported where they are considered to be appropriate and this will generally be within larger commercial centres where they will not be detrimental to the character and appearance of a conservation area. In some cases these should reflect the proportions and rhythm of traditional shopfronts, particularly in conservation areas, where this will contribute to the character of a parade or groups of retail frontages. This will include the incorporation of elements including stallrisers, top lights, appropriately proportioned and located fascias and features such as pilasters and brackets. In many cases timber will be the most suitable material for shopfronts of this nature. House styles may have to be adapted to fit in with the age and character of the building in which the shop front is to be situated.

4.64f Security is a real concern for shop owners but it is important that the measures taken to safeguard the premises do not detrimentally affect the character and appearance of the building or the quality of the environment. Internally mounted shutters of the open mesh type should be considered as these have a minimal impact by allowing views into the shop front, are less visible themselves and do not result in obtrusive box housing to the fascia.

4.64g The council will promote fascia and projecting advertisements appropriate to the shopfront design and limit the quantity where excess would spoil the character of a particular area.

EN8E FORECOURT PARKING

Forecourt parking will not be permitted where it would: a) be out of keeping with the existing character of the street; or

Chapter 4 101 London Borough of Hammersmith and Fulham: UDP Alterations

b) result in the loss of architectural features such as walls, gates or railings; or c) result in surfacing and/or parking occupying a disproportionate amount of the front garden; or d) involve the destruction of trees and vegetation that makes a positive contribution to the local environment; or e) obstruct daylight or outlook enjoyed by the occupiers of a basement or lower ground floor dwelling.

4.64h There is considerable parking pressure within the borough which has resulted in an increased demand for forecourt parking. This can have a detrimental effect on the character and amenity value of the streetscape with the resultant loss of front gardens and their features, boundary treatments and the sense of enclosure these give, and in damaging the uniform appearance of terraces and groups of houses. Outside conservation areas, the operation of the General Permitted Development Order means that powers of control over forecourt parking are very limited or non- existent. The council will seek to restrict permitted development rights for forecourt parking through Article 4 Directions, where important townscape issues arise, in particular in conservation areas and areas of special quality. However when the creation of a vehicular access is necessary and where planning permission is required it will be resisted where the proposal will be detrimental to the environment of the area or where it will be likely to affect road and pedestrian safety. or reduce the level of available on-street parking (also see policy TN 15A).

EN8F REPLACEMENT WINDOWS

Permission will not be granted for replacement windows which, in terms of their size, shape, proportions, colour, texture or detailed design would be out of keeping with the architecture of the building and its surroundings.

In conservation areas single dwellings where a Direction has brought windows under planning control, and in the case of flats or commercial buildings, where it is intended to alter the appearance of a window by its size, design and opening characteristics, planning permission is likely to be required. Inappropriate replacement windows can have a particularly damaging effect on the appearance of a property and the general street scene. This is particularly apparent where the property forms part of a terrace, or a flat within a converted property or purpose built block, and the uniformity of window design is lost. In most cases, the detailed design of the windows is a fundamental component of the elevation. Replacement windows should respect the architectural style and character of the building. Replacement windows should match the original windows in terms of material, type and size, method of opening, profile and section, and subdivision.

EN9 HIGH BUILDINGS

A new building significantly higher than most of the surrounding buildings or in excess of 20 metres will not normally be acceptable unless it meets all the following requirements:

Chapter 4 102 London Borough of Hammersmith and Fulham: UDP Alterations

(i) It does not adversely affect the character of a conservation area.

(ii) It does not adversely affect the character of any area from which it would be seen, including open spaces, the river or riverside.

(iii) It does not adversely affect the Strategic View from Richmond Park (King Henry VIII's Mound) to St. Paul's Cathedral as identified on the Proposals Map.

(iv) It does not affect any other important view, including that of Central London from Sawyers Hill or a local view or landmark or views from or towards the River Thames, its bridges or the riverside.

(v) It does not affect the setting of a building on the statutory list or Local Register.

(vi) It should enhance the townscape and, if located on a riverside site, be clearly justified for townscape reasons.

(vii) It should not be likely to cause an unacceptable increase in ground level windspeeds in the vicinity.

(viii) It should be carefully related to its surroundings in accordance with policy EN8 and the Standards Chapter (Chapter 11).

4.65 Most of the townscape of the borough is sensitive to the impact of high buildings as defined in the policy. Over large areas the character is predominantly one of low rise traditional development where buildings that are significantly higher would be seriously intrusive. In many places the existing character is protected by conservation area status and high buildings inside such areas would damage rather than enhance the character of the area. However, even outside these specially protected areas, higher buildings can seriously affect the distinctive feel of different parts of the borough, especially where they intrude on established views and skylines viewed from open spaces, the river, riverside, or bridges. The impact can be experienced over a wide area. Therefore the council will consult neighbouring boroughs, English Heritage and the Royal Fine Art Commission on applications for high buildings where they may affect strategic views and in other cases where the council considers it to be appropriate. The Strategic View from Richmond Park (King Henry VIII's Mound) to St. Paul's Cathedral as identified on the Proposals Map will be especially protected. The council will have regard to the Secretary of State's Supplementary Guidance for London on the Protection of Strategic Views when determining planning applications for development within the viewing corridor of the Strategic View. The council also wishes to protect other important views including the panorama of this borough and Central London from Sawyers Hill which is on the road through Richmond Park between Star and Garter Gate and Roehampton Gate.

4.66 The council's opinion is that over much of the borough high or higher buildings are unlikely to be appropriate. Where proposals are made they must, of course, be considered on their merits, and the council will assess carefully whether, in the case of very well designed buildings, there could be a real benefit to the townscape. On riverside sites, in particular, the council considers that high buildings would not normally be appropriate to the character of the river or riverside. The general height of buildings on riverside sites is low- to medium-rise and so the river

Chapter 4 103 London Borough of Hammersmith and Fulham: UDP Alterations

has an open character, not dominated by high buildings. In considering any applications for high buildings in the borough, the council will be particularly concerned to consider the opinions of local people.

4.67 In addition, the council will also consider whether the quality of the local environment is likely to be affected detrimentally as a result of wind turbulence associated with the erection of high buildings. This can lead to uncomfortable conditions for pedestrians around the base of the building, but the wind effect is not simply related to height, and other design elements may be important.

EN10 DESIGNING OUT CRIME SAFETY IN NEW DEVELOPMENTS

Development (including new residential and commercial buildings, landscaping, open areas, landscaping, and environmental and pedestrian improvements) each development (including new buildings, extensions, conversions and changes of use) will not be permitted unless it must be designed to provides safety and security for those who use it. Users with a safe and secure environment.

4.68 It is essential that all sections of the community, especially those who may be which are vulnerable to any crime assault, should both feel safe and be secure. It is should be an integral part of the design process to achieve this, and the council will expect development proposals to have satisfactorily sought to design out crime in line with the advice contained in Home Office Circular 5/94 Planning Out Crime, developments should achieve as safe an environment as physically possible using the standards and best practice advocated by “Secured by Design” local police crime prevention design advisors and the framework identified as Crime Prevention through Environmental Design (CPTED). However design of developments should be sufficiently flexible to remain sensitive to local circumstances .

4.68a The council’s Crime and Reduction Strategy 1999-2002 and other reports note that some groups, are especially affected by safety and security, including women and ethnic minorities who may be subject to physical harassment and attack; the elderly and people with disabilities who are less mobile and therefore more vulnerable; and children who may not be aware of safety risks. Hazards may be created inadvertently through poor design, but can as easily be avoided or removed if proper attention, for example layout, lighting and closed circuit television (CCTV) cameras to be operated in line with the council and Police Code of Practice, is given to safety and security in the design process. Ideally it would be appropriate if developers catered for the groups mentioned by undertaking a safety and security audit of, and liased with the local Police Crime Prevention Design Advisor regarding, the design of their developments.

EN11 ACCESS TO, AND INSIDE, BUILDINGS FOR PEOPLE WITH DISABILITIES

1994 Policy EN11 deleted and EN12 enhanced

EN12 ACCESS WITHIN OPEN AREAS USED BY THE PUBLIC AND DESIGN

Chapter 4 104 London Borough of Hammersmith and Fulham: UDP Alterations

In any open area used by the public, the council will require standards of access which do not disadvantage any groups in the community. The requirements of access and safety will be applied to features such as open spaces and new footways, and of particular importance will be provision of ramps and street furniture that is well sited and designed

Development (including new residential and commercial buildings, open areas, landscaping, and environmental and pedestrian improvements) will not be permitted unless it provides for ease of access for all users, including disabled people.

4.70 The requirement for equal access for all public areas outside buildings is as important as access to and within buildings. Pavements should include ramps at road intersections. Tactile pavement markings should be used to indicate pedestrian crossings, etc. The Conservation Area Character Profiles provide guidance on the use of this material in conservation areas. Pavements should be kept clear of hazardous obstructions, including badly-located street furniture. Public open spaces should have access for all.

4.69 The council is committed to encouraging a built environment which is accessible to people with disabilities. The design of any development or building or space open to the public, should provide full access for all users including those with disabilities and mobility difficulties. Developments relating to premises which are covered by the Chronically Sick and Disabled Persons Acts 1970 - 1981 (generally buildings to which the public is admitted) are expected to make provision for people with disabilities in the means of access both to and within the building or premises, and in parking facilities and sanitary conveniences. However, the council considers that whilst these Acts and the Building Regulations are very important in improving accessibility for people with disabilities, it is unreasonable for any person to be denied the opportunity to enter any part of a building simply because he or she has a disability. The requirements of the Building Regulations must be followed, but these are not always adequate to achieve this aim. For example lifts are not required if a building is split into small self-contained business units. Therefore the design of and access to buildings should achieve the higher standard of unrestricted access for everybody (see also policy EN4 TN4 HO6 and standard S4).

EN13 PUBLIC ART

The council will encourage developers to allocate a percentage of the capital costs of a new building, refurbishment, or extension to enhance the design of all features of the building and its surroundings. This public art should if possible reflect local themes. In certain circumstances it may be appropriate for temporary art work to be provided during construction as well as permanent artwork when the development is completed.

4.71 It is increasingly recognised that the provision of public art in public places as well as the use of high standard materials in developments can improve the quality of the urban environment, by making places and spaces more attractive and congenial for their users.Public art could include the design of all features of the building and its surroundings such as street furniture and lighting, walkways and paths, as well as more conventional features such as murals, sculptures or fountains. Public art can help to provide access to a wide variety of arts and craft; a focus of interest; and a sense of local identity for the community. There can also be significant economic

Chapter 4 105 London Borough of Hammersmith and Fulham: UDP Alterations

benefits, by making the locality more attractive, and hence an incentive for new businesses to locate in the borough, and particularly if local artists and/or crafts people are commissioned, thus contributing to the economic regeneration of the borough. Public art proposals should be the subject of public consultation wherever feasible, and should if possible reflect local themes, thereby enhancing the sense of place and character of the area.

EN14 ADVERTISEMENTS

The council will consider all advertisements in accordance with the Town and Country Planning (Control of Advertisements) Regulations 1992 In addition it will have regard to standards S15 and S16 in Chapter 11 of the Plan when considering the advertisement's impact on amenity and public safety. The majority of the Mall Conservation Area has been designated an Area of Special Advertisement Control.

4.72 The display of an advertisement can have a considerable impact on the visual amenity of the street scene if its size, design and siting are handled insensitively. The council takes the view that any advertisements requiring consent should not adversely affect the character of individual buildings and streets. Because of the special character of conservation areas advertisements will need very careful consideration. The standards, S15 and S16, give appropriate guidance for conservation areas as well as for elsewhere in the borough. There is one area of special advertisement control in the borough, namely The Mall Conservation Area

EN15 FRONT ROOF EXTENSIONS AND ADDITIONAL STOREYS

Front roof extensions and additional storeys to flat or valley roofs will not be allowed where the character of the terrace or street scene in which the property is situated has not already been significantly impaired by existing roof extensions. Where front roof extensions are acceptable they must be in a design sympathetic to the street scene and the individual style of the property, and respect the scale and appearance of the property concerned. The existence of adjacent roof extensions will be taken into account when considering relevant applications. Where extensions to flat or shallow roofed properties are found to be appropriate they must be set behind the parapet without radically changing the appearance of the house or street. (See also standards S9 and S10 in Chapter 11).

4.73 Additions to the roof of a single building can have a drastic effect on the building's appearance and on that of its neighbours. The effect is accentuated in a heavily built-up area where terrace houses predominate - and in particular where economic and social factors are bringing a general pressure to maximise the amount of living space in those houses. This is increasingly the position in Hammersmith and Fulham, where the erection of front roof extensions is causing concern both to residents and to the council. A balance must be struck between the full use and modification of buildings and the protection of the environment. Detailed guidance on the design considerations to be applied by the council when considering roof extensions and other upward extensions of buildings are contained in standards S9 and S10 in Chapter 11.

Chapter 4 106 London Borough of Hammersmith and Fulham: UDP Alterations

ENERGY, RECYCLING AND POLLUTION ENVIRONMENTAL PROTECTION POLICIES

EN16 ENERGY CONSERVATION AND RENEWABLE ENERGY

The council will encourage development to be located and designed in order to conserve energy through the application of principles of energy efficiency.

1. All development should be designed to promote greater energy efficiency and encourage energy efficient forms of travel and transport such as walking, cycling and increased use of public transport.

2. The integration of energy generation from renewable sources in building design will also be welcomed provided there is no visual intrusion, noise disturbance or other demonstrable harm to the local environment or to the living and working conditions of neighbouring occupiers.

1994 paragraphs 4.74 and 4.74a replaced by altered text

The council will plan for energy efficiency in relation to proposals for land use, transport, development and in its own activities. New developments should be designed to promote more energy efficient forms of transport such as walking, cycling and use of public transport.

All planning applications for new buildings and major renovations should demonstrate how the principles of energy efficiency design have been incorporated. This would include consideration of more efficient layouts, built form and elevational treatment, including the design of windows, walls, roofs and conservatories.

4.74b The Government is aiming to reduce carbon dioxide emissions to 20% below 1990 levels by 2010. Increased energy efficiency “can contribute to sustainable development by reducing greenhouse gas emissions. Buildings account for almost half of the UK’s delivered energy consumption and associated emissions of CO2, the main greenhouse gas causing climate change. Action by planning authorities to increase energy efficiency can complement building regulations and the wide range of DETR and DTI initiatives.” (Planning for Sustainable Development: Towards Better Practice. DETR 1998)

4.74c Greater energy efficiency not only reduces greenhouse gas emissions, but also can considerably reduce expenditure on energy over the life of the building and in the case of housing assist in providing affordable warmth to the occupants. Some of the measures proposed will not significantly increase building costs if they are incorporated when new buildings are being constructed, or major building works are being carried out.

4.74d Thermal insulation matters are covered by the Building Regulations which seek to provide for a certain standard of energy efficiency in new works. However, this policy is concerned with other forms of energy conservation that the council can seek through the planning process. Passive solar design will necessitate careful consideration of the layout of the site, the orientation of the buildings and the design of the windows and walls in order to maximise the use of solar energy.

Chapter 4 107 London Borough of Hammersmith and Fulham: UDP Alterations

4.74e The council will also encourage the use of energy from renewable sources, particularly the use of photovoltaic power where this is appropriate and feasible. Photovoltaic power is electricity generated directly from sunlight and produces no pollutants when in use. Well designed systems pose no visual intrusion, noise or other planning issues, particularly when integrated into the design of a new building. However, visual intrusion may occur where systems are retrofitted over existing roof surfaces and may be an issue in conservation areas or on listed buildings. In these cases it will be necessary to balance the benefits of reduced CO2 emissions with the possible adverse effects on conservation areas.

4.74f Combined heat and power schemes (CHP) can significantly increase energy efficiency by using waste heat from power generation to heat nearby buildings. CHP schemes are most appropriate in larger mixed use developments and consideration should be given to incorporating CHP in all such larger developments.

4.74g Supplementary Planning Guidance provides greater detail about the way in which developments can be more energy efficient.

EN16A ENERGY GENERATION

Proposals for the development of renewable energy installations/energy from waste installations will only be permitted if there would be no demonstrable harm in terms of visual impact, people’s health and safety, air quality and odour, dust, water protection, noise, access and traffic generation, and nature conservation.

4.74g Apart from solar energy, solid waste is likely to be the other main renewable energy resource in this borough. Energy from waste (EfW) can be recovered by incineration or pyrolysis (organic waste is heated in the absence of air to produce a mixture of gaseous and liquid fuels and a solid inert residue -mainly carbon). It can reduce emissions of greenhouse gases by replacing fossil fuels that would otherwise be used, with carbon-neutral biomass and would reduce the amount of waste going to landfill. However any application for an EfW should also be considered in relation to its impact on the local area and how it relates to a sustainable waste management strategy (policy EN19 Waste Management Facilities).

Current Governmental policy on renewable energy (PPG22) encourages new sources that are economically viable and environmentally acceptable. This includes potential new energy from waste facilities that should be sited as close as possible to the waste source to reduce adverse transportation impacts. There are means of palliative pollution control for many of the environmental impacts that may arise from renewable energy installations, in addition to those preventive controls afforded by the planning system.

EN17 WASTE COLLECTION AND DISPOSAL

1994 Policy EN17 replaced by altered text shown below

Chapter 4 108 London Borough of Hammersmith and Fulham: UDP Alterations

Development will not be permitted unless suitable facilities are incorporated for the storage and collection of segregated waste in accordance with development standard S5

4.75 Waste is a misuse of natural resources and wherever it is avoidable it should be prevented. This can be achieved by reduction in the use of materials, by re-use or by recycling. The council supports measures to reduce the volume of waste, but its main contribution is to expand recycling in order to achieve as a minimum the Government target to recycle 25% of domestic waste by the end of the decade Measures to achieve this are set out in the council's Recycling Plan and in policies EN18 and EN19. Initially a A network of easily accessible collection points for the public will be provided. In the longer-term a better solution is for waste-producers, including households, to sort and segregate waste in order to facilitate specialised collection arrangements. These can improve the viability of recycling schemes. Alternative arrangements are being assessed in the Recycling Plan. Building and rebuilding works should provide room for short-term storage of sorted waste, otherwise the volume of waste that can be recycled will be reduced, and the storage of waste may become environmentally intrusive. This will be detrimental to the character of the locality. For similar reasons (i.e. in order to minimise the amount of waste being dumped in the borough) the council will continue to provide skips at weekends at around 80 sites throughout the borough on a 4-week cycle to discharge the council's duty under the Refuse Disposal Amenity Act (1978). Civic Amenity waste facilities will also be provided on the proposed Waste Recycling Depot (policy EN18).

The council is actively promoting a strategy for increasing the amount of recycled waste in the borough and supports as a minimum the Government target to recycle or compost at least 25% of household waste by 2005 (Waste Strategy 2000). The principles of sustainable waste management make it important that a much greater proportion of waste is re-used, recycled or composted. In order to facilitate greater recovery of waste, it is essential that premises /buildings of all uses - residential, commercial, retail, leisure, institutional, etc - have the space to segregate and store waste for recycling and where appropriate, re-use and composting. In multi-storey buildings it is also important that facilities are provided to ensure that recyclables can be collected.

The council will therefore look to all new developments, changes of use and conversions to provide for the storage and collection of segregated waste in accordance with development standard S5 – Refuse storage and collection.

EN18 WASTE RECYCLING DEPOT

An area of 1.0 hectares within Site 47, Imperial Road is proposed as suitable (amongst other uses) for a depot for and in connection with waste recycling.

4.76 In order to fulfil the Recycling Plan and achieve the Government target on recycling, the council considers provision should be made in the Plan for a depot to deal with recycling of materials. Site 47 is a suitable location for such a use and should not be detrimental to residential amenity. It is also an appropriate location because of its proximity to the Waste Authority's refuse transfer station in Wandsworth and the existing council depot in Bagley's Lane.

Chapter 4 109 London Borough of Hammersmith and Fulham: UDP Alterations

EN19 PRIVATE REFUSE TRANSFER STATIONS WASTE MANAGEMENT FACILITIES

Proposals for waste management will be considered in relation to the waste management principles of the

• Best Practical Practicable Environmental Option • Waste management hierarchy • Regional Self-Sufficiency • Proximity principle.

Developments will also be required to satisfy the following criteria: a) The scheme would be for the re-use or recovery of waste, rather than as a preliminary to disposal, and b) The siting would be as close as possible to the principal waste source, and where maximum use can be made of rail or water transport, and c) Access to the borough road network would not prejudice traffic safety or the free flow of essential traffic, and d) There would be no demonstrable harm to local amenity in terms of noise, pollution, smell, dust or disturbance from vehicle movements

The council will permit private waste transfer stations and recycling facilities only where there will be no significant adverse effects on local amenities caused by noise, pollution, smell, dust or increases in traffic. Such locations must also have good connections to primary and secondary roads and as far as practicable be designed to use rail or river transport for the disposal of waste. An Environmental Assessment may be required to accompany any planning application in sensitive locations.

4.76A The council endorses the principles of sustainable waste management (PPG10: Planning and Waste Management) . The criteria against which any application for a waste management facility will be considered reflect the four principles of sustainable waste management; Best Practicable Environmental Option (BPEO), waste management hierarchy, regional self-sufficiency and the proximity principle. A waste management facility should not only accord with the principles of sustainable waste management but should not have a significant adverse effect on the amenities of surrounding occupiers.

Best Practicable Environmental Option 4.76B Any decision in relation to waste management facilities will need to consider the “Best Practicable Environmental Option” (BPEO). The BPEO procedure establishes for a given set of objectives, the option that provides the most benefits or least damage to the environment, as a whole, at acceptable cost, in the long term as well as in the short term.

Waste hierarchy 4.76C As a first priority waste should be reduced at source, followed by re-use, composting, recycling and energy recovery and finally disposal, usually to landfill.

Chapter 4 110 London Borough of Hammersmith and Fulham: UDP Alterations

Regional Self-Sufficiency 4.76F Most waste should be treated or disposed of within the region in which it is produced. Proximity principle 4.76D The proximity principle requires that waste should be managed as close as possible to the point of production. This encourages all those who create waste to take more responsibility for the effects of managing that waste. It also has the advantage of reducing the amount of transport required to move waste. The method of waste transport also has to be considered; it may be more sustainable to move waste a longer distance if it is by water or rail, than a shorter distance by road.

4.76E The council will apply the Town and Country Planning (Environmental Impact Assessment) Regulations 1999 when deciding if particular applications should be accompanied by an Environmental Impact Assessment. The council may request a statement which provides a systematic analysis of the proposals on the environment in other cases where particularly sensitive balancing of local environmental issues is involved

4.77 Whilst encouraging private contractors to recycle waste the council does not wish to encourage additional waste transfer stations. A profusion of such facilities is an inefficient use of land, and in the council's experience may cause significant adverse effects on local amenities. Such proposals may need to be the subject of an environmental assessment including the consideration of alternative sites if they are in sensitive locations.

EN19A RECYCLING OF DEMOLITION WASTE

The council will encourage the re-use and recycling of demolition waste; recyclable materials should wherever feasible be segregated on site, providing there is no significant adverse local impact. On larger demolition sites the council will request details of the type and quantity of waste arising and details of the proposed methods of disposal, including means of transport.

4.77A The re-use and recycling of demolition wastes has environmental benefits in reducing the requirement for primary aggregates and thereby mineral workings, and in reducing volumes of material going to landfill. Minerals Planning Guidance Note 6 encourages the use of demolition and construction wastes and recycled materials in construction. To enable demolition waste to be re-used or recycled the segregation of waste on site should be encouraged, providing there is no significant adverse local impact. On larger construction sites applicants will be expected to demonstrate that they have made provision for the re-use and recycling of demolition wastes. Applicants will also be expected to use rail or water for the transport of demolition waste where this is appropriate and feasible.

EN 20 POLLUTION

1994 Policy EN20 deleted

Chapter 4 111 London Borough of Hammersmith and Fulham: UDP Alterations

EN20A CONTROL OF POTENTIALLY POLLUTING USES

Development which may cause pollution will only be permitted if it would not: i) release pollutants into water, soil or air, whether on site or in other areas, which would cause unacceptable harm to people’s health and safety, the natural environment or the landscape; ii) pose a risk through contamination on site or on roads in and around the site; iii) cause nuisance from smoke, fumes, gases, dust, steam, heat, light, vibration, smell, noise or other polluting emissions; iv) have a significant adverse impact on road safety or traffic flows; v) have a damaging impact on other land uses; vi) restrict types of new development in the vicinity or impose special conditions on them.

4.78 Many activities can be a source of nuisance, a hazard to health, or both. Pollution may be experienced immediately and locally but there is increasing concern for the long-term and global implications of carbon dioxide emissions from motor vehicles and hazardous or ozone depleting chemicals. Ground water and surface water also need to be protected from unsuitable development and activities. In addition, the council is opposed to potentially dangerous operations such as the transport of nuclear waste through the borough.

4.79 (part) Pollution control is frequently controlled by Central Government or its appointed agencies, and the council can take direct action through its environmental health powers. The council can address pollution problems through planning powers, for instance, to control the location of (or to prohibit) uses that may cause nuisance, such as special industry in Use Classes B3-B7. It will also seek to direct larger non-residential developments to areas with high public transport accessibility (see standard S1) to reduce the need for private car journeys. In the case of any development which is likely to have a significant effect on the environment (in accordance with the appropriate regulations), the council can require the developer to prepare an Environmental Statement so that the effects can be fully assessed as part of the consideration of an application

EN20B NOISE POLLUTION

Housing and other noise-sensitive development will not normally be permitted where the occupants/ users would be affected adversely by noise from existing or proposed noise generating uses. Exceptions will only be made if it can be demonstrated that adequate mitigation measures will be taken.

Noise generating development will not be permitted, if it would be liable to materially increase the noise experienced by the occupants/users of existing or proposed noise sensitive uses in the vicinity.

Chapter 4 112 London Borough of Hammersmith and Fulham: UDP Alterations

4.80 (part) Noise and associated vibration in particular, can affect and have a direct impact on noise sensitive uses, particularly housing, but also including uses such as schools and hospitals. local amenity. Some areas of the borough are subject to significant noise disturbance. Existing and potential noise levels will be taken into account when assessing a proposal for residential development. Residential development in noise exposure categories (NEC) C and D will not normally be permitted unless the applicant can show that the occupants would not be adversely affected by noise Noise levels both inside the dwelling and in external amenity spaces will be considered. The council will therefore require a careful assessment of likely noise levels before determining planning applications. Where necessary, applicants will be expected to carry out noise assessments and provide details of the noise levels on the site. Further aAdvice on planning and noise is contained in the council’s Planning Guidelines on Noise and in PPG24 Planning and Noise.

4.80a Where noise mitigation measures will be required to enable development to take place, an outline application will not normally be acceptable.

4.80b Any proposal (including new development, conversion, extension, change of use) for a noise generating development close to dwellings or other noise sensitive uses will be assessed to determine the impact of the proposed development in relation to these existing uses. In this borough noise generating activities that cause particular problems tend to be late- closing entertainment and food and drink establishments. These uses will therefore be considered in relation to policy SH11, the A3 Planning Guidelines and the Planning Guidelines on Noise.

4.90 The council has prepared Supplementary Planning Guidance on issues such as sound insulation in residential conversions and food and drink establishments.

EN20C LIGHT POLLUTION

Where planning applications include external lighting, this should be designed in order to provide the minimum amount of lighting necessary to achieve its purpose and to minimise avoid glare and light spillage from the site. In particular, consideration will be given to the effect of the light produced on local residents.

4.80c External lights can enhance the safety, security and appearance of public buildings and spaces, extend the hours of use of outdoor sports facilities. However, light pollution can have a serious damaging effect on the amenity of an area and can cause disturbance to adjoining uses, particularly residential uses. The potential harm to wildlife is particularly important on the river and in parks and open spaces and in nature conservation areas. External lights should therefore be designed to avoid glare and light spillage from the site, as well as to conserve energy.

EN20D HAZARDOUS SUBSTANCES

Planning permission for development involving the use, movement or storage of a hazardous substance will not be granted if there would be additional risk to the health or safety of users of the site, occupants of neighbouring land or the environment.

Chapter 4 113 London Borough of Hammersmith and Fulham: UDP Alterations

Development in the vicinity of a site used for the storage, use or transport of hazardous substances will not be granted permission if there would be an unacceptable risk to the life or health of its users.

4.80e Activities using, storing or transporting hazardous substances will not be permitted where they might pose a risk to people occupying sites and building in the vicinity. Certain sites and pipelines are designated as notifiable installations by virtue of the quantities of hazardous substance present. The siting of such installations are subject to planning controls, for example under the Planning (Hazardous Substances) Regulations 1992, aimed at keeping these separated from housing and other land uses with which such installations might be incompatible from the safety viewpoint. In accordance with Circular 11/92 the Local Authority will consult the Health and Safety Executive, as appropriate, about the siting of any proposed notifiable installations, including pipelines.

4.80f In Fulham there are three installations handling notifiable substances, including pipelines. Whilst they are subject to stringent controls under existing health and safety legislation, it is important to control the kinds of development permitted in the vicinity of these installations. Circular 11/92 requires that the Health and Safety Executive should be consulted prior to the granting of planning permission about the risks to the proposed development from the notifiable installation and this could lead to refusal of permission, or restrictions on the proximity of development to the notifiable installation. The notifiable sites and pipelines are shown on the Proposals Map and listed in Appendix 4.8, together with the distance from the notifiable site for which consultation with the Health and Safety Executive will be required. The distance from the pipelines in which buildings will not normally be permitted is also listed.

EN21 ENVIRONMENTAL NUISANCE

All developments (including new buildings, demolition of existing buildings, conversions and changes of use) shall ensure that there is no undue detriment to the general amenities at present enjoyed by existing surrounding occupiers of their properties, particularly where commercial and service activities are close to residential properties. The council will, where appropriate, require precautionary and/or remedial action if a nuisance would otherwise be is likely to occur, to ensure that it will not. In respect of noise, in particular, the emission caused by any new use should not increase the ambient level existing prior to the commencement of that use as measured from any window of any neighbouring residential building or other building where noise can be invasive.

4.80 (part) The benefits of any new enterprise or commercial activity must always be set against any adverse effects on the amenities of local residents and existing firms. These effects may take the form of additional noise, vibration, grit, dust, ash, soot, smoke, steam fumes, offensive or noxious odours, unduly intense or obtrusive lighting, interference to the reception of radio and television transmissions, car parking, or increased vehicular or pedestrian traffic flow and are often the subject of Environmental Health legislation. The diversity of possible effects makes standards difficult to set and, although the council wishes to encourage enterprise, it is concerned to ensure that this is in the right place and is designed appropriately, so as not unduly to interfere with the existing quality of life in the borough.

Chapter 4 114 London Borough of Hammersmith and Fulham: UDP Alterations

EN21A DEVELOPMENT ON CONTAMINATED LAND

When development is proposed on or near a site that is known to be, or there is good reason to believe may be, contaminated, an applicant should carry out a site assessment and submit a report of the findings in order to establish the nature and extent of the contamination. Development will not be permitted unless practicable and effective measures are to be taken to treat, contain or control any contamination so as not to: i) expose the occupiers of the development and neighbouring land uses including, in the case of housing, the users of gardens to unacceptable risk; ii) threaten the structural integrity of any building built, or to be built, on or adjoining the site; iii) lead to the contamination of any watercourse, water body or aquifer; iv) cause the contamination of adjoining land or allow such contamination to continue;

Any application will be assessed in relation to the suitability of the proposed use for the conditions on that site. Any permission for development will require that the remedial measures agreed with the authority must be completed as the first step in the carrying out of the development.

4.80d It is important that any land that is known, or suspected of being contaminated is dealt with before change of use occurs. Some sites may be contaminated as a result of being in the vicinity of a contaminated site. The risk of this contamination depends on ground conditions and the type of contamination. In order to determine the nature and extent of contamination, the applicant will be required to carry out a site assessment. Any treatment of the contamination must be agreed with the council before remedial measures are begun. The remedial measures must be appropriate for the actual or proposed uses.

OPEN SPACE AND NATURE CONSERVATION POLICIES

EN22 LOSS OF OPEN SPACE PUBLIC OPEN SPACE AND OTHER GREEN SPACE OF BOROUGH-WIDE IMPORTANCE

1994 Policy EN22 replaced by altered text shown below

Development on public open space and other green open space of borough- wide importance identified on the Proposals Map will not be permitted unless it can be shown that such development would preserve or enhance its open character its function as a sport, leisure or recreational resource; and its contribution to biodiversity and visual amenity

RPG3 Strategic Guidance for London Planning Authorities, advises boroughs to identify local open spaces and set out policies for their protection. Public open space

Chapter 4 115 London Borough of Hammersmith and Fulham: UDP Alterations

and other green open space of borough-wide importance have been identified in appendix xx. These open spaces are not large or significant enough to be designated as MOL but are nevertheless an important part of the structure of open space in the borough and provide breaks in the built up area, recreation for residents and assist biodiversity. Some of these open spaces are not publicly accessible, or access is restricted. However, they make an important contribution to local and visual amenity or have the potential for public use and therefore of meeting recreational and biodiversity needs in the borough.

The policy does not preclude development in open space altogether. However, any proposals must demonstrate, and the council must be satisfied, that the development would increase the value of the open space in terms of amenity for the local community and in terms of biodiversity.

The council recognises that the primary purpose of open sporting facilities is for sport and recreation, but the council also considers that sports stadia and clubs, even where largely enclosed in nature, can provide important urban green space for specialist recreation in the borough

4.81a Open space falls into a number of different types and categories. It includes

4.81 It is desirable to retain existing open space because there is a shortage of all types of open space in the borough, but particularly small parks within 1/4 mile of the home. All development proposals will be considered against the value of any existing open space, but it is possible that the quality of the environment is likely to suffer from the loss of any open space. Therefore replacement will generally be required. Furthermore once built over, it is likely to be lost to the community forever. This applies to private open space and gardens as well as public open space. Private open space can be as important to the character of an area as public open space, and it is an existing asset with a potential for public use. Back gardens are also important as an amenity for residents and because of their nature conservation value. Open spaces at the rear and sides of buildings are also valuable as an expression of the form of the settlement pattern. The filling-in of voids between buildings can damage the quality of the townscape.

4.82 Open space is particularly important in this borough which is disadvantaged in strategic terms in its provision (see LPAC's 1988 Strategic Advice para. 8.24 and the London council for Sport and Recreation's "Playing Field Strategy") and where there are also local deficiencies as shown on Figure 4.1 which identifies areas more than 400 metres from public open space. This figure only identifies major local deficiencies, in areas where there is no public open space. Areas not shown as deficient do not necessarily have a surplus of open space, and may only have access to very small open spaces.

EN22X PUBLIC AND PRIVATE OPEN SPACE OF LOCAL IMPORTANCE

In the case of public or private open space that is not identified on the Proposals Map development will not be permitted where such land either individually or cumulatively has local importance for its open character or as a sport, leisure or recreational facility, or for its contribution to local biodiversity or visual amenity unless:

Chapter 4 116 London Borough of Hammersmith and Fulham: UDP Alterations

The proposed development would release a site for built development needed to realise a qualitative gain for the local community in pursuance of other physical social and economic objectives of the UDP, and would provide for relocation of the open space to a site in the locality which is at least equivalent in size, quality, accessibility, usefulness and attractiveness to that being lost

Open space is particularly important in this borough which is strategically disadvantaged in open space provision. It is therefore important to protect all open spaces and their functions, including those that are not designated MOL or open spaces of borough-wide importance but are considered locally important. These open spaces of local importance may include land used for passive recreation and active sport, or as a children’s play areas, or land which contributes to the health and education of the local community, or to the local environment and to biodiversity, or which has social and cultural value, or where its protection would assist in sustaining the economy and promoting regeneration. The open space may be within the curtilage of buildings such as schools, churches and housing estates.

All development proposals will be considered against the value of any existing open space, because it is possible that the quality of the environment will suffer from the loss of any open space – once built upon, it is likely to be lost to the community forever.

It is therefore important to retain all open space. However, the council recognises that in some circumstances, it may be appropriate to permit the loss of open space in order to release a site for built development needed to meet other qualitative economic and social objectives identified in the UDP Part 1 strategy. In such circumstances, replacement open space of the same or improved quality, accessibility, usefulness and attractiveness will be required. This reflects the approach set out in the PPG17 Consultation Paper.

Open spaces at the front, rear and sides of buildings are also valuable as an expression of the form of settlement pattern. The filling of voids between buildings can damage the quality of the townscape (see policies EN2D and EN3).

EN23 NEW OPEN SPACE OPEN SPACE PROVISION IN CONNECTION WITH DEVELOPMENT

All new development will be required to make provision of open space to meet the needs of the occupiers and users. In respect of residential development open space provision will need to be in accordance with development standard S5A and S7.

Such provision should be made on site but, where this would lead to unduly fragmentary provision and the inefficient use of development land, it may be made as a contribution to the establishment of, or enhancement of, nearby open space.

Proposals should include open land provision beyond that required to meet the needs of the development itself, particularly where:

(a) The locality is identified as an area of general open space deficiency. (b) New open space would contribute to the improvement of town centres, employment zones and regeneration areas.

Chapter 4 117 London Borough of Hammersmith and Fulham: UDP Alterations

(c) There is potential to enhance natural features of strategic importance such as the riverside. (d) The open space would create, or contribute to, provision of pedestrian links between existing open space, town centres, entertainment venues or other established pedestrian routes. (e) There is potential to enhance the biodiversity value of an area, including the creation of new habitats for wildlife.

New open space provided under this policy will be required to have safe and easy access for all users, including disabled people, and to include facilities and equipment sufficient to enable the use of the open land for the purposes intended. Planning conditions may be imposed, or planning obligations sought, to deal with these matters and to ensure that the land Is properly maintained

In addition to the need to try to increase provision and accessibility of open spaces throughout the borough, especially in areas of deficiency, there are other areas of the borough where new open space and amenity areas can significantly enhance the environment for residents, users and visitors. In town centres and employment zones they can provide sitting out areas and “greening”, and help to improve the attractiveness of the areas for investment. Along the Thames, new open spaces can help enhance the riverside walk whilst also opening up the river to the public.

In some development schemes, including those identified by site proposals in chapters 9A and 10, it will be essential to provide open space for residents, occupiers and users, particularly where the proposed development would generate additional demand on existing open space. This will improve the design of the scheme and enhance the quality of life. Any requirements for new open space provision may be secured by planning condition or by seeking planning obligations which, subject to the provisions of circulars 11/95 and 1/97, will also seek to ensure that suitable maintenance arrangements are in place.

In other developments, whilst it may not be practicable or necessary to provide open space, it may be reasonable to expect users, for example workers in an office block, to use a neighbouring or nearby open space. The council considers that in these circumstances any it is appropriate for a developer to contribute to enhancement of and/or maintenance of facilities to cater for increased usage of the open space which is likely to occur.

The council will seek to increase the area of open space in the borough. that is accessible to the public. This may be achieved directly, or as part of mixed- use development schemes. In the latter case, arrangements for laying-out and management may be included in a Section 106 agreement. New open spaces should provide a range of activities appropriate to their location and size, and will be particularly appropriate in the following circumstances:

(i) Where the locality is identified as an area of deficiency (Fig. 4.1).

(ii) Where the new open space can contribute to the improvement of town centres and employment zones.

(iii) Where there is potential to enhance natural features of strategic importance such as the riverside.

Chapter 4 118 London Borough of Hammersmith and Fulham: UDP Alterations

(iv) Small areas within residential neighbourhoods, especially those that can provide play spaces, or are laid out by a local initiative, such as community gardens.

(v) In Hammersmith Town Centres and the Sands End area where several of the above criteria apply. Specific proposals for major new open space in these areas are included in Chapter 10.

(vi) Where the open space could form part of a "Green Chain or "Metropolitan Walk" providing a pedestrian link between existing open spaces, town centres, entertainment venues, or other pedestrian routes such as the Thames Path National Trail, the Grand Union Canal Walk, or other walks in the London-wide network of Metropolitan Walks being developed in conjunction with London Walking Forum.

4.83 The borough is deficient in both large and small areas of open space, as noted by LPAC (Strategic Advice para. 8.24). This deficiency is assessed on the LPAC hierarchy of open space (Strategic Advice Table 8.3. The council's main priority is to remedy the deficiency of small local parks and children's play spaces, because these are of particular value to people with children and the elderly, both of whom have limited mobility

The council has identified areas of deficiency, shown on Figure 4.1. This identifies areas of the borough more than 400 metres from any public open space. Cemeteries are excluded because they are unsuitable for play activities. Railways and dual- carriageway roads are considered to be absolute barriers, unless they can by crossed by a bridge without steps, so open spaces are excluded if such a barrier must be crossed. Other main roads, (those defined as secondary in the network classification), are shown on the Plan because they can also act as a barrier, deterring some but not all. Those deterred may well be those most in need e.g. young children, and old people and those members of the community with disablilties, so all main roads should be considered to be at least a partial barrier, and wherever possible small local open spaces should be accessible without crossing any main road. This qualification should be applied to interpretation of the Deficiency Map. 400 metres is also considered to be the maximum appropriate walking distance, and where open space exists or can be provided closer to home this should be protected or provided. The possibility of creating a "Green Chain" (see Strategic Guidance - para. 63) will be a further advantage of small open spaces.

EN23A OPEN SPACE PROVISION IN NEW DEVELOPMENT

1994 Policy EN23 deleted

EN23B CHILDRENS PLAY AREAS

Development will not be permitted if this would result in the loss of existing children’s playspace, or result in an increased deficiency in the availability of such playspace.

Chapter 4 119 London Borough of Hammersmith and Fulham: UDP Alterations

Where residential development that provides family dwellings is proposed, playspace provision will be required by means of a communal play area on site or by the provision of, or a contribution to, new or enhanced facilities in the immediate vicinity. The scale of provision and associated play equipment, will be in proportion to the scale, and related to the nature of, the proposed development, in accordance with development standard S7.

Residential developments that contain family accommodation without gardens must make some or all of such playspace provision on site.

The importance of children’s play spaces for different age groups, including teenagers, within general open space provision is recognised by RPG3.

In 1998 the council undertook a study of play areas for children in the 0-8 years age group. Although this highlighted the deficiencies of play areas for children 0-8 years, the borough, in common with other inner London boroughs, is deficient in the provision of all children’s playspace, including teenagers. If the borough is to achieve NPFA standards it would need to have between 94 and 126 hectares of outdoor playspace, whereas currently there are just 7 hectares (excluding sports courts and school playing fields). The distribution of playspaces is uneven and there are some areas where there is a deficiency. It is therefore important to retain and improve those existing playspaces and provide, where appropriate new play facilities for children of all ages.

New or enhanced children’s play facilities should be provided areas for 0-8 year olds will be sought so that there is satisfactory provision within the immediate vicinity of children’s homes, i.e. within (240m metres straight line distance).

Any requirements for playspace provision in association with new development may be secured by planning condition or by seeking planning Obligations which, subject to the provisions of circular 1/97, will also seek to ensure that suitable maintenance arrangements are in place. EN24 METROPOLITAN OPEN LAND

The council has defined four areas of Metropolitan Open Land (MOL) on the Proposals Map: Kensal Green and St. Mary's Cemeteries; Wormwood Scrubs; Bishops Park and the Warren Allotments; and Hurlingham Club and Park.

There is a presumption against development in these areas, which must remain in predominantly open use.

There will be a general presumption against inappropriate development within the areas of metropolitan open land identified on the Proposals Map.

Development on metropolitan open land is inappropriate unless it is required to provide essential facilities for outdoor sport and outdoor recreation, for cemeteries, and for other uses of land which preserve the open character of metropolitan open land, and do not conflict with the purpose of including land within this designation.

4.84 Metropolitan Open Land has an importance beyond the borough's boundaries and may provide: - Attractive breaks in the built-up area; - Open-air facilities, especially for sport and recreation;

Chapter 4 120 London Borough of Hammersmith and Fulham: UDP Alterations

- Features or landscape of special interest, especially nature conservation areas or sites.

4.85 There is a presumption against development on such land, as strong as the presumption against development in the Green Belt (Strategic Guidance para. 61 Appropriate uses will be predominantly open in character as set out in LPAC's Strategic Advice (Table 8.1).

RPG3, Strategic Planning Guidance for London Planning Authorities, sets out the main criteria for designating MOL. These are that land:

“contributes to the physical structure of London by being clearly distinguishable from the built up area,

Includes open air facilities, especially for leisure, recreation, sport, arts and cultural activities and tourism which serve the whole or significant parts of London,

Contains features or landscape of historic, recreational, nature conservation or habitat interest, of value at a metropolitan or national level.”

The council has defined four areas of MOL on the Proposals Map: Kensal Green and St Mary’s Cemeteries; Wormwood Scrubs; Bishops Park and the Warren Allotments; and Hurlingham Club and Park. These open spaces are predominantly open in character and are of more than borough significance by virtue of their size and catchment area. It is therefore important that MOL is safeguarded from inappropriate development that would be harmful to the permanent integrity and openness of such land.

Essential facilities are facilities that are clearly ancillary to and required for the uses of land which preserve the openness of MOL, and do not conflict with the purposes of MOL designation. Such facilities may include small changing rooms and unobtrusive spectator accommodation for outdoor sport. The reuse of existing vacant buildings within the MOL will also be encouraged but uses should not prejudice the openness of MOL.

EN25 PROTECTION OF TREES

The council will continue to make Tree Preservation Orders on trees of amenity value. The council will endeavour to prevent removal or mutilation of protected trees. It will require suitable replacements for trees that are removed. Where trees are protected by a Tree Preservation Order and have to be removed for reasons of disease, danger etc. suitable replacements will be required. Trees on development sites should be retained, and care taken to avoid damage to these trees during building works.

4.86 The loss of trees will nearly always result in a deterioration of environmental character and will not be acceptable without good cause, particularly if subject to a Tree Preservation Order. Pruning or lopping should be investigated as an alternative. A tree that is felled should normally be replaced with a tree of a similar species. Any works affecting trees in conservation areas must be notified to the council six weeks in advance.

Chapter 4 121 London Borough of Hammersmith and Fulham: UDP Alterations

EN26 TREE PLANTING

The council will expect developers to plant trees where appropriate, and will itself continue to plant appropriate trees in suitable locations. Normally native species should be planted. If felling is necessary trees must be replaced with other suitable species, normally native species. Newly-planted trees must be nurtured until well- established, and subsequently maintained.

4.87 Trees provide a valuable contribution to local amenities and the street scene, allowing improvements to the environmental quality of the area to be achieved at a relatively low cost. The council will endeavour to plant new trees wherever and whenever possible as part of its on-going tree planting programme, but Unfortunately sub-surface services or nearby foundations may make it impractical to plant trees in some streets. New development schemes provide the opportunity to provide landscaping including tree planting on site Normally, native trees, or trees indigenous to this country should be planted, because these can provide habitats for indigenous wildlife.

EN27 NATURE CONSERVATION AREAS

1994 Policy EN27 replaced by altered text shown below

The Nature Conservation Areas identified on the Proposals Map (and listed in Appendix 4.5 and shown also in Figure 4.2) will be protected from development likely to cause demonstrable harm to their wildlife value.

Development will not be permitted unless: a) The proposed development would release a site for built development needed to realise a qualitative gain for the local community in pursuance of other physical, social and economic regeneration objectives of the UDP, and measures are included for the protection and enhancement of any substantive nature conservation interest that the site may have; or b) Provision is made for replacement nature conservation interest of equal or greater value to the area.

Planning conditions will be imposed or planning obligations sought to ensure the maintenance and enhancement of nature conservation areas where these are affected by development proposals.

4.88 Nature conservation is as important in towns as in the countryside. There are only three Nature Conservation Areas of Metropolitan Importance in the borough, as recommended by the London Ecology Unit now the GLA Biodiversity Group. These are the River Thames and its inlets, the Grand Union Canal and the Kensal Green Cemetery. However there are many sites of borough-wide and of local importance. These include small areas of semi-natural land which provide habitats for species of flora and fauna, e.g. railway embankments, and vacant or under-used sites. If identified and properly managed such semi-natural habitats could also

Chapter 4 122 London Borough of Hammersmith and Fulham: UDP Alterations

provide a valuable educational and recreational resource for the local community for suitable educational and recreational purposes. In a borough where land is at a premium and where many locations require physical, social and economic regeneration, many of these sites need protection as nature conservation areas. This is to protect them from demonstrable harmful impacts both from on-site development but also on occasion, harmful impacts from nearby development. Where replacement nature conservation areas are proposed as a result of development then permission will only be given where it has been demonstrated that there will be at least equal nature conservation value provided by the new site. This will be assessed by reference to the London Ecology Handbook or, in future, data held though the borough’s Biodiversity Action Plan Many of these sites are vulnerable to development proposals in a borough where land is at a premium, so need protection as nature conservation areas. It is unrealistic to prevent development on all sites of some nature conservation importance, so key sites where development will not normally be allowed have been identified and graded according to their importance. Some additional sites may be considered for designation in consultation with the London Ecology Unit, GLA Biodiversity Group, English Nature and the Countryside Commission Agency and, if so, will be put forward as Alterations to the UDP. Such sites may be newly created, and need not be of nature conservation importance already, but could be valuable in increasing public awareness of nature conservation. There are no Sites of Special Scientific Interest or Local Nature Reserves in the borough at present, but if any such areas are designated this policy will also apply to them, to protect them from development. but the Thames and its foreshore are a major wildlife habitat, distinct in character and extent from other nature conservation areas. It supports a wide and diverse range of flora and fauna which will be identified, preserved and enhanced by both the Thames Strategy Kew – Chelsea and the borough’s Biodiversity Action Plan providing a basis for decisions on development proposals. The council designated its first statutory Local Nature Reserve (LNR) at Wormwood Scrubs Park in July 2002. This site and any future Lars or SCI’s will be subject to this policy which will protect them from development. Where the Nature Conservation areas are rail-side land, wildlife interests should be taken into account by those carrying out development necessary for railway operational purposes, and will be a material consideration in any planning applications that may be submitted for such works.

EN28 GREEN CORRIDORS

1994 PolicyEN282 replaced by altered text shown below

Map, the landscaping of development proposals will be required to make a positive contribution to the perception of the local environment as both leafy and pleasant. Proposals for tree planting, open space and general greening of the environment within the corridors will be promoted and welcomed.

4.89 Green corridors are defined by RPG3 as extensive contiguous areas of trees and open space which straddle the major road, rail and river/canal routes. By suitable tree planting and other landscaping of these routes they can enhance the perception of London as a leafy and pleasant city. In this borough they extend along parts of the rail route and may link nature conservation areas and they allow some animals and plants to penetrate further into the built-up area than would be the case if they did not exist. They may thus enhance the major habitats that they link e.g. the railway line linking the river and the canal and the nature conservation areas in

Chapter 4 123 London Borough of Hammersmith and Fulham: UDP Alterations

between. Such corridors are of great value in boroughs such as Hammersmith and Fulham, which are not well endowed with nature conservation areas. Where the corridors are railway embankments and cuttings there may be operational requirements which must be taken into account, e.g. safety regulations relating to overhanging branches, or developments that improve the quality of services such as new stations. In these circumstances, as indeed with all proposals affecting green corridors, the nature conservation value of the corridors should be respected.

Opportunities to further strengthen the functions of the Green Corridors will be sought. These may be from future development proposals within the Corridors including those arising from operational uses or specific environmental improvement schemes either generated through council or voluntary activities by those with an interest in land or property within the corridors (see also EN30). However any such proposals to enhance corridors, including filling in gaps or extensions, should not prejudice the operational needs alongside the road, rail or river/canal thoroughfares. Domestic gardens that adjoin green corridors can add value to the corridors, but this does not constrain householders’ normal permitted development rights. Their value is further strengthened through the cumulative effect of many gardens in close proximity. The council will encourage recognition of their value through its Local Biodiversity Action Plan, and in the application of policy HO12. The green corridor designation will impact only on more significant householder schemes, which will be expected to maintain, or contribute positively to, the leafiness and pleasantness of the local environment.

EN28A SPECIES PROTECTION

Permission will not be granted for development that would have a demonstrably harmful effect on a protected species, or the habitat of a protected species, unless planning conditions can be imposed, or a planning obligation is in place, to: a) Facilitate the survival of the species on site; or b) Cause minimum disturbance of the species and its habitat; or c) Sustain current levels of the species’ population in an alternative location.

4.89a Part 1 of the Wildlife and Countryside Act 1981, sets out the protection which is afforded to wild animals and plants, the schedules of species protected are reviewed every 5 years. Some animals are protected under their own legislation, e.g. the Protection of Badgers Act 1992. The presence of a protected species is a material consideration when a local planning authority is considering a development proposal which if carried out, would be likely to result in harm to the species or its habitat. The council will consult English Nature before granting planning permission, and will consider the use of appropriate planning conditions or planning obligations under which the developer would take steps to secure the protection of the species.

Chapter 4 124 London Borough of Hammersmith and Fulham: UDP Alterations

4.89b The council will also seek to protect species that may not be given statutory protection, but which are included in the Mayor’s Biodiversity Strategy, the London Biodiversity Action Plan, or a Local Biodiversity Action Plan, or are uncommon or are under threat in London.

EN29 NATURE CONSERVATION ON DEVELOPMENT SITES

Development proposals on all land should protect any significant nature conservation interest of the site and any nearby Nature Conservation Areas and, where appropriate to the scale and nature of the site, should enhance the nature conservation interest by having regard to the following guidelines:

(i) New buildings should be located and designed as far as practicable to retain any valuable nature conservation habitats and features on the site. The site should be surveyed to locate any habitats of flora or fauna. These should be retained. Where it is impracticable to retain existing habitats, new ones should be provided. Habitats, whether retained or created, must be maintained. Building operations should be carefully supervised to avoid ecological damage to the site. Migration links across the site should be retained or re-routed, or created if possible where none exists.

(ii) Development should include a diverse landscape around the buildings and avoid as far as possible large unbroken areas of mown grass, tarmac, concrete or artificial materials.

(iii) Proposals should use parts of the site that are difficult to develop for potential nature conservation e.g. planting or the creation of ponds, wildflower meadows using crushed concrete etc. Planting should include a diverse range of species native to London, of trees, shrubs and flower-rich grassland.

(iv) Buildings could include features of nature conservation such as climbing plants, window boxes, bird nesting cavities, bat roosting boxes etc. Roof gardens may be suitable provided they do not overlook residential properties.

(v) The council will encourage the provision of access to important wildlife habitats by local schools wherever feasible.

4.90 The closely built-up nature of the borough, and the lack of major nature conservation sites, makes it important that all new developments are sympathetic to nature conservation. This can readily be achieved by following a few simple guidelines, which do not affect the efficient functioning of the new building, and are not likely to be a significant part of total development costs. In fact nature conservation can enhance the character of the building and the value of the site. The council will consult the London Ecology Unit when appropriate for a judgement on the nature conservation value of the site, and for advice on drawing up detailed proposals to implement these guidelines.

EN30 VACANT SITES

Chapter 4 125 London Borough of Hammersmith and Fulham: UDP Alterations

Vacant sites and premises must be maintained safely without detriment to local amenities. The council will have regard to the potential of such sites for new open space, and the site's importance for recreation or nature conservation when assessing proposals for development of sites.

4.91 Vacant sites frequently spoil the appearance of the locality and the quality of the environment, unless they are maintained in a safe and tidy manner. Some sites that have been vacant for some time may have become important habitats for some species of flora and fauna, or may be used as a temporary open space. PPG17 states (paragraph 27):

"Under-used land which has recreational or amenity value should be protected by the planning system if it can be demonstrated that there is (or could be) a deficiency in accessible public open space in the area."

Development by building may not therefore necessarily always be appropriate, because the site has existing or potential importance as a permanent open space or nature conservation area, or if the immediately surrounding area is built-up so that the vacant land is a significant open feature in the local context, irrespective of size, existing use or ownership. If development does take place it should follow the guidelines set out in policy EN29.

RIVER AND CANAL POLICIES

EN31 THE THAMES AND THAMES SIDE AREA OF SPECIAL CHARACTER IMPORTANT VIEWS ALONG, ACROSS, AND FROM, THE RIVER

The council will seek to preserve and enhance the special character of the river and riverside with particular regard to:

(i) the designation of most of the riverside as conservation areas (policy EN1);

(ii) the existence of and need to protect important local views (policy EN8);

(ii) addressing issues such as impact on views, design quality, and local context as well as the treatment of the river edge

(iv)

(v)

(iii) the designation of the river as a green chain (policy EN23);

(iv) the existence of adjacent areas of Metropolitan Open Land in this borough (policy EN24) and the London borough of Richmond;

(v) the river's value as a Nature Conservation Area of metropolitan importance (policy EN27)i

1. Development within the Thames policy area will not be permitted if it would cause demonstrable harm to the view from the following points:

Chapter 4 126 London Borough of Hammersmith and Fulham: UDP Alterations

a) From Hammersmith Bridge, the view of along the river, foreshore, and riverside development and landscape between Hammersmith terrace to the west and Fulham Football Ground to the south b) From Putney Bridges, the views of along the river, foreshore and riverside, extending upstream from All Saints Church and its environs, along bishops park as far as Fulham Football Ground, and from Putney Railway Bridge the view downstream to the grounds of the Hurlingham Club c) From Wandsworth Bridge, the view up and downstream of the river, its foreshore and banks, and of commercial wharves and riverside buildings

2. Development will also not be permitted if it would cause demonstrable harm to the view from within the Thames Policy Area of any of the following important local landmarks identified on the proposals map, or their settings: a) Upper and Lower Mall. The richness, diversity and beauty of the historical waterfront which includes Hammersmith terrace, Kelmscott House and neighbouring group of listed buildings, and the open space of Furnival Gardens allowing views of the skyline of Hammersmith and the spire of St. Pauls Church, b) Bishops Park. The parallel avenues of mature London plane trees and dense shrubbery which define the character of this important open space and the riverfront c) Grounds of the Hurlingham Club. The landscaped edge of the grounds providing glimpsed views to the listed Hurlingham House d) Hammersmith Bridge. The fine example of a suspension bridge is particularly dominant, and is an important landmark along this stretch of the river e) Putney Bridge and the adjacent All Saints Church

4.92 The River Thames contributes to the character and functions of the borough in several ways and is of strategic importance to the Region as a whole. It should be a focus for local communities and activities which maximise its potential as a London wide resource. In line with Strategic Guidance the council recognises the importance of the river and has defined the boundary of the Thames Policy Area within the borough in order to protect the features of the riverside and river which contribute to the character of the river at both the borough and strategic levels. These features are as follows:

• an major linear open space, unique and of London wide importance. • a landscape feature, particularly views of, across and from the river • a resource for recreation and sporting activities • a transport route • a working river • sites of archaeological and historic interest • an ecological resource and an important refuge and green corridor for wildlife • as a location for river-related commercial enterprises

Chapter 4 127 London Borough of Hammersmith and Fulham: UDP Alterations

• as a leisure and tourist facility

4.93 The council agrees with LPAC that the river and riverside is an Area of Special Character, that is, an area of metropolitan importance because of its architectural, historic and landscape value. To protect the features of the riverside which contribute to the character of the borough, recognised in para. 4.92, the council has defined the Area of Special Character to include parts of all the conservation areas already designated along the riverside. Policies EN23, EN26, EN27 and EN28 will apply to the river, its foreshore and banks, and to the riverside. The council also supports the designation of the riverside as Heritage Land by the Countryside Commission.

4.93a Much of the riverside and all of the river within the borough lies within designated conservation areas. The borough has published Conservation Area Character Profiles for all its riparian Conservation Areas. There are numerous listed buildings, historic parks and historic townscapes with strong ties with the river within the borough and it is important that their setting and relationship with the river is preserved. 4.93b In addition to the general design policies in the Plan, development on the riverside needs to respect the unique character of the river. The aim is to secure a special quality for all new development on the river and riverside, and where appropriate to enhance the vitality of the riverfront and include river-related uses that attract the public. There is a need to consider the design of individual buildings as well as the spaces around them and broader urban design issues. This must be done with a full understanding of the context and local character of the area.

Much of the river and riverside within the borough lies within designated conservation areas. The views afforded by the open nature of the riverfront are important in determining the character of each stretch of the riverside in the conservation areas, and will therefore be crucial in assessing the acceptability or otherwise of development proposals along the river’s edge.

In line with Strategic Guidance, the council has identified a number of views across and along the river which are important to the local scene and which are to be protected. The council has included in this list of important views, all river edges of historical significance, corridor views of particular importance and views towards important landmarks. The views towards specific landmarks can be enjoyed from various viewpoints along the riverside. These views will vary in nature and content, as the viewpoint changes. Locations have been marked on the Proposals Map which represent the longest viewing point towards each landmark.

The landmarks identified include bridges, areas of open space, and groups of buildings along a historic riverfront. All have strong links with the river and it is important that their setting and relationship with the river is preserved. Bridges are particularly important landmarks. They subdivide the river, and help to define the character of each stretch. Furthermore, bridges are important vantage points and command extensive views along the riverside.

The council is aware that the landmarks identified are also enjoyed in important views from outside the borough boundary, and will ensure that these are fully considered when assessing the impact of any development which may impinge on these views.

Chapter 4 128 London Borough of Hammersmith and Fulham: UDP Alterations

The council is a member of the Steering Group of riparian boroughs, the Government Office for London, the Environment Agency, the Port of London Authority and local societies, set up to prepare a comprehensive strategy for the River Thames between Kew and Chelsea. The Thames Strategy has identified a number of views within the designated study area. The identification of views and landmarks is continuing within the ambit of the Strategy and this will be addressed when the Plan is next reviewed.

4.93d This major linear open space also provides the backbone of London’s open- space structure and is of significant ecological and nature conservation value. In considering the above the council will ensure that preserves and enhances this.(see ENV31A)

4.93e In addition to policy EN31 the council is a partner in the new Thames Strategy - Kew to Chelsea., The Strategy will use the approach developed in the Thames Landscape Strategy combined with work required by RPG3b/9b Strategic Guidance for the River Thames to deliver detailed appraisals of the Thames and its environs within the Thames Policy Area . The Strategy will become supplementary planning guidance. This will identify numerous qualities of the Thames Policy Area including: i) the individual character of reaches within the borough ii) areas, sites, buildings, structures, landmarks, skylines, landscapes and views of particular sensitivity and importance iii) development sites and regeneration opportunities iv) sites of ecological importance v) sites of archaeological importance vi) focal points (existing and proposed) of public activity vii) public access and recreation opportunities

POLICY EN31X DESIGN OF DEVELOPMENT WITHIN THE THAMES POLICY AREA

Development will not be permitted within the Thames Policy Area unless it respects the riverside context, is of a high standard of urban design and maintains or enhances the quality of the built environment. Schemes that meet these requirements, and, by their design, contribute to creating an attractive, safe and interesting riparian environment will be welcomed.

In addition to the general design policies in the Plan (see EN8), development on the riverside needs to respect the unique character of the river. The council will pay special regard to development within the Thames Policy Area as defined on the proposals map so that it is of a high quality of design which respects its context having particular regard to the height, massing and bulk of development and its relationship to the river corridor, river walk and/or river edge, its tributaries and foreshore, as well as landward development.

The aim is to secure a special quality for all new development on the river and riverside, and where appropriate to enhance the vitality of the riverfront and include river-related uses that attract the public. There is a need to consider the design of individual buildings as well as the spaces around them and broader urban design issues. This must be done with a full understanding of the context and local character of the area. The council will require the submission of a design statement

Chapter 4 129 London Borough of Hammersmith and Fulham: UDP Alterations

as part of a planning application within the Thames Policy Area. The statements should include :

An assessment of scale, mass, height, silhouette, density, layout, materials and colour in relation to: the local context, including River frontage; impacts on local and strategic views, including views across, along and from the river; the skyline, and; local landmarks and historic buildings and structures. Proposals for river edge treatment; visual and physical permeability and links with the River’s hinterland; protecting and enhancing public access to and along the River, landscaping, open spaces and street furniture and lighting

EN31A THE NATURAL ENVIRONMENT OF THE THAMES

The council will seek to preserve and enhance the special character of the nature conservation and open space aspect of the Thames corridor and the quality of the natural environment of the Thames Policy Area with particular regard to:

(ii) the existence of adjacent areas of Metropolitan Open Land in this borough (policy EN24) and the London Borough of Richmond;

(iii) the river's value as a Green Corridor and a Nature Conservation Area of Metropolitan Importance (Policy EN27)

9.93f This major linear open space provides a wealth of habitats and supports a wide and diverse range of flora and fauna. It is of significant ecological and nature conservation value and the council will endeavour to preserve and enhance this function. The River Thames is designated as a green corridor (EN28) an together with its inlets has been designated as a Nature Conservation Area of Metropolitan importance by the London Ecology Unit.

EN32 USE OF THE RIVER PROVISION FOR WATER-BASED ACTIVITY AND USES IN THE RIVER

The council will encourage the use of the river for public and freight transport, river-based recreation and commercial purposes provided these are compatible with the character of the river, the riverside and the importance of the river as a wildlife habitat.

Development will not be permitted if it would result in the loss of existing facilities in the river for water-based activities and uses, unless the facilities are demonstrably surplus to current or anticipated requirements, or unless alternative facilities of similar or greater utility are to be provided.

Developments that include provision in the river for water-based and river- related activities and uses, and for facilities associated therewith, particularly where these would be publicly accessible, will be welcomed, provided they are compatible with the character of the river, the riverside, and the importance of the river as a wildlife habitat they do not give rise to hazards to navigation and safety and they accord with other objectives and policies of the plan.

Chapter 4 130 London Borough of Hammersmith and Fulham: UDP Alterations

4.94 The river can and should be used in ways that reflect its special character as described in the explanation of policy EN31. It can provide a base for many water- related recreational and commercial activities, a transport route that can relieve congestion on road and rail, a feature of the landscape and a habitat for many varieties of flora and fauna. In particular the improving quality of the river for fish could be adversely affected by inappropriate riverside development. Use of motorised boats for recreation, other than passenger-carrying vessels, may not be compatible with the character of the river, and the enjoyment of the majority of users. The use of the Thames for freight and servicing and for public transport is also subject to policies TN31 and TN26.

In considering proposals for the use of the river, the council will consult and collaborate with appropriate organisations such the Port of London Authority and the Environment Agency.

EN33 USE OF THE RIVERSIDE DEVELOPMENT OF RIVERSIDE SITES

1994 Policy EN33 replaced by altered text shown below

Development will not be permitted on riverside sites if it would prejudice the continuation of, or result in the extinguishment of, existing uses that have a functional relationship with the river, unless the site is demonstrably surplus to current or anticipated requirements, or the use is to be relocated to a site of similar or greater utility.

The inclusion, in development proposals, of new uses that have a functional relationship with the river, particularly where these increase public access to the river, will be welcomed, provided they are compatible with the character of the river and riverside and accord with other objectives and policies of the Plan.

4.95 This policy recognises the inter-relationship of between the river as a watercourse, and the riverside. The successful implementation of the policies for the river see EN32 requires complementary policies for the riverside sites. There are pressures for redevelopment of riverside sites for non-river related uses and it is important i.e. to retain sites that have a functional relationship with the river, including boat building, servicing and repair facilities, mooring sites, boat houses, slips, slipways, hards and pontoons, steps, stairs and landing places. It is also important to encourage where there is a known need or demand, new uses that make use of the river for river- related recreation, transport or commercial purposes whilst retaining its natural character and built heritage, and are in accordance with appropriate design guidelines. The Proposals Map specifically identifies the three wharves ( Swedish, Comleys (RMC Fulham) and Hurlingham) safeguarded by the Secretary of State for the Environment, Transport and the Regions for the transhipment of freight, including waste and aggregates, and related freight activities. There are detailed site proposals affecting the wharves (Sites A and B). and policy TN31

EN34 THE RIVERSIDE WALK

Chapter 4 131 London Borough of Hammersmith and Fulham: UDP Alterations

1994 Policy EN34 replaced by altered text shown below

The route for a continuous riverside walk through the borough alongside the River Thames, identified on the Proposals Map, will be safeguarded from development likely to prejudice its construction and completion.

Development of sites that include part of the route will be required to incorporate construction or enhancement of the section of the route concerned. In cases where development having a functional relationship with the river is proposed, the requirement will be to provide or enhance the riverside walk to the maximum extent compatible with the functional use of the river, or to make arrangements for the construction or enhancement of the walk on an alternative route.

The walk should generally be at least 6m wide, and should be accessible to cyclists if this can be achieved without risk to the safety of pedestrians or river users.

4.96 In accordance with the general policy to encourage public access to and enjoyment of the river and riverside the council has for over a decade been seeking an accessible walkway along the whole length of the riverside. This will enhance the character of the river as a feature of the borough. Much of the walk already exists. The council welcomes the Countryside Agency’s Thames Path National Trail which is a long distance walking route as consistent with its general policy of opening up the riverside. The riverwalk will normally be achieved when redevelopment takes place on riverside land and its provision is specifically set out in a number of riverside site proposals included in chapter 10 of the Plan. Elsewhere, on land not covered by site proposals, developments will still be expected to incorporate construction of the riverside walk, and In instances where development creates a direct need to improve or enhance an existing section of the riverside walk planning conditions may be imposed or developer contributions sought. The council would only envisage the use of compulsory purchase powers to achieve the riverwalk in circumstances where a very short section of the Countryside Commissions proposed Thames Path National Trail needed to be completed in order to remove a very long inland diversion which is not a recognised part of the National Trail route. Such powers might be invoked where a planning application for redevelopment of a riverside site excluded the river frontage, or where vacant riverside land had no prospect of early redevelopment.

4.97 The council believes the riverside is an asset that should be available and accessible to all local residents. In accordance with recent trends the council wishes to encourage cycling, and the riverside walk can and should provide a traffic-free route for cyclists as well as pedestrians. In some cases widening of the walk will not be possible because of recent developments. Alternative routes, or scope for sharing of the walk by pedestrians and cyclists, will need to be investigated. The riverside cycle-route is a long-term venture and should be provided where feasible, even if the whole route cannot be achieved in the short-term. The council also accepts that the design of the riverside walk should reflect and enhance the natural character of the river wherever possible e.g. by use of planted embankments. The council's Riverside Walk Brief, (see the Supplementary Planning Guidance), incorporates the relevant provisions of the Countryside Commission's Agency’s "Design Guidelines for the Thames Path National Trail" and guidance from The Environment Agency, and will be updated now that the Thames Strategy: Kew to Chelsea supplementary planning

Chapter 4 132 London Borough of Hammersmith and Fulham: UDP Alterations

guidance has been approved. The brief will include guidance on construction details, including the provision of cycling facilities (see also policy TN6 Transportation – Provision for Cyclists)

EN34A ACCESS TO THE FORESHORE

Development proposals on sites extending to the river edge will be required to ensure that safe access to and from the foreshore is maintained or, where appropriate enhanced.

Access to the foreshore, which is primarily in the ownership of the Port of London Authority, can have both a recreational and educational value. There is a right of access for fishing, navigational and other customary purposes. Public access must be considered in the context of the environmental and archaeological importance of the foreshore, and particularly safety considerations bearing in mind the fast tidal flows affecting this part of the Thames.

Development bordering the River has an important role to play in these respects. Some sites may include drawdocks, slipways, steps, stairs, hards, piers, pontoons, ladders, chains or other infrastructure enabling access to and from the river and its foreshore. These should be retained, kept in good repair or added to as appropriate, and planning conditions may be used to ensure this where such conditions would accord with the advice in Circular 11/95. The profile of the River bank may also have a bearing on ease of access to and from the foreshore, and on the protection of environmental interests, while inter-visibility between development sites and the foreshore is also an important aid to public safety. These are matters that will be taken into account when considering the design of developments bordering the River. Consultation with the Port of London Authority and the Environment Agency will be undertaken on all proposals concerned with or affecting access to the foreshore.

EN35 STRUCTURES AND RECLAMATION IN THE RIVER DEVELOPMENT THAT ENCROACHES INTO THE RIVER OR ONTO THE FORESHORE

1994 Policy EN35 replaced by altered text shown below

Development which encroaches into the river and its foreshore will not be permitted unless it is: a) Necessary for the construction of new bridges, tunnels, jetties, piers or slipways; or b) Represents other minor works required in connection with the retention or improvement of river based recreational facilities or transport facilities, or works necessary to provide or improve public access to the riverside, including access for people with disabilities;

All such development will be required to be sited and designed so as to minimise the impact on adjacent residential areas and neighbouring riparian uses and on the character of the particular reach of river concerned, and its

Chapter 4 133 London Borough of Hammersmith and Fulham: UDP Alterations

biodiversity and to avoid intrusion into important views, not to impede navigation, water flow, the integrity of flood defences, or public safety.

4.98 The river, including its foreshore and its banks, is a unique form of open space with a special environmental character and archaeological value of London- wide importance. Therefore protection of the character and features, must be an over-riding priority. In exceptional circumstances minor infilling for building Development may be allowed subject to environmental and amenity considerations, if this is necessary to achieve greater use of the river or riverside for river related recreational or river transport purposes or for the construction of bridges, tunnels and other river related infrastructure . Permission will also be required from the Port of London Authority and the National Rivers Authority Environment Agency, and the council will work closely with these organisations when considering proposals involving encroachment.

EN36 MOORINGS IN THE RIVER

The council will only allow the mooring of vessels, and the construction of floating structures such as pontoons and jetties where these are for river- related recreational purposes or to facilitate the carriage of passengers or goods on the river. Preference will be given to short-term moorings provided for short-stay visitors to places of interest nearby, which should be safe and secure. The council will only consider additional long-term mooring of craft for residential purposes where these are for vessels capable of navigation, which are being used as the only residence of the boat- owner. Proposals for new moorings will be considered against the criteria set out in policy EN37. It is particularly important that such moorings can make adequate provision for parking and servicing on the adjacent shore without detriment to the character and visual quality of the conservation area, the riverside walk, and views to/from the river or riverside. Existing moorings will be encouraged to carry out improvements if necessary and where feasible to meet these criteria. The council will encourage those who provide moorings to follow the guidelines published by the London Rivers Association, which are available as Supplementary Planning Guidance to this Plan.

4.99 Boats are an essential element of the river scene, and moorings are therefore sometimes appropriate in suitable locations. However the siting and use of moorings must be strictly controlled. Moorings used for inappropriate purposes will detract from rather than enhance the character of the river. This is particularly true of Hammersmith which marks a transition from a primarily urban river to a more rural character. The number of sites suitable for new moorings in the borough is strictly limited. This policy is therefore intended to protect the character of the river by a general presumption against additional moorings. In no circumstances will moorings be allowed for inappropriate commercial activities such as offices. Moorings, if appropriate, should normally be for river transport or other river- related recreation purposes. The council does not wish to jeopardise the future security of existing residential moorings with existing use rights or valid planning permission, but any new moorings must be for genuine boat-owners resident on their boats, and subject to environmental constraints. All necessary consents must be obtained from the Port of London Authority and the Environment Agency.

Chapter 4 134 London Borough of Hammersmith and Fulham: UDP Alterations

EN37 CRITERIA FOR DEVELOPMENTS IN THE RIVER

Where moorings, structures, or infilling of the river is being considered the proposals will be assessed in accordance with the policies and standards of the Plan, and the following specific requirements:

(i) Public access to the riverside and to the development including satisfactory access for people with disabilities.

(ii) Impact on adjacent residential areas and other riparian uses.

(iii) Character of the river in the locality.

(iv) Appearance, including effect on important views.

(v) Nature conservation importance of the river.

(vi) The need to safeguard navigation, water flow and the integrity of flood defences. Navigation on the river must not be impeded.

(vii) The volume and quality of the water must not be adversely affected e.g. by waste outfall, except with the necessary consents from the Environment Agency National Rivers Authority.

(viii) Provision of public utilities, especially if these require additional land on the riverbank for plant and equipment.

(ix) Safety considerations

In addition the council will encourage developments to comply with the LPAC Guidelines for Permanent Moorings and Structures in the River Thames in Greater London (August 1990) which are available as Supplementary Planning Guidance.

4.100 Subject to the general policies for reclamation, floating structures and moorings in the river set out in policies EN36 and EN37, the requirements of this policy are designed to protect the unique character and special features of the river, whilst allowing a limited number of developments for appropriate purposes. These requirements are a check-list of the factors to be taken into account, not standards which must be met. These cannot be expressed in terms relevant to all locations. All necessary consents must be obtained from the Port of London Authority and the National Rivers Authority. Environment Agency.

EN38 DEVELOPMENTS ON THE RIVERSIDE

1994 Policy EN38 deleted

EN39 FLOOD PREVENTION

Proposals for development or redevelopment of riverside land likely to

Chapter 4 135 London Borough of Hammersmith and Fulham: UDP Alterations

increase the risk of flooding, either in the vicinity, or further downstream must include appropriate measures to minimise these risks, and to maintain the integrity of the flood defences, and to permit access for emergency and maintenance purposes. Sustainable Urban Drainage Techniques as recommended by the Environment Agency will be encouraged in new developments and renovation projects.

4.102 Developments on or near the river must take into account any consequences that may increase the risk of flooding. Unattenuated run-off from developments increases the risk of flooding from the receiving watercourses. may lead to pollution problems and damage the river habitat. It will also decrease the amount of water soaking into the ground, thus reducing water resources. This may occur either through an increase in surface water run-off when porous surfaces are replaced by impervious surfaces such as roads, or because flood defences such as river walls are affected. The Environment Agency can advise on suitable techniques to reduce the environmental impact .Any developments affecting the river or on the riverside and larger developments elsewhere in the borough should be the subject of discussions with the National Rivers Authority Environment Agency before planning applications are submitted. This will help to reduce delays in processing applications. All proposed developments affecting the river should be discussed at any early stage with the National Rivers Authority Environment Agency, and any necessary statutory consents obtained from that Authority.

EN40 THE GRAND UNION CANAL

The Grand Union Canal is a Nature Conservation Area of Metropolitan- wide importance. The council will encourage improvements to the environment and character of the Grand Union Canal and supports British Waterways objective to achieve improvements in water quality and to minimise pollution it will seek to improve access to the canal to encourage use for transport and for recreational purposes. The potential to establish a long distance canalside walk in support of initiatives by British Waterways Board and other west London councils will be safeguarded. In particular the council supports the initiatives by British Waterways Board and other west London councils to provide a long-distance canalside walk, and British Waterways objective to achieve improvements in water quality standards and to minimise pollution. In addition, the council recognises the potential benefits which could arise from a canal/rail link in the area currently being explored by British Waterways.

All developments along the canal must respect its character and special nature conservation value and have regard to improving and enhancing views along the waterway. Environmental improvements to the canal's appearance will include enhancement of its nature conservation value. In assessing any proposals for development in the vicinity of the canal the council will have regard to the design guidelines of the London Canals Consultative Committee. The Old Oak Common Sidings Birch Wood Nature Conservation Area adjoins the canalside and will be developed as a nature conservation park, if not required as part of the proposed East-West CrossRail Link.

4.103 Many of the characteristics and environmental features of the river are also present in the Grand Union Canal, and RPG3 identifies both rivers and canals as linear open spaces. The canal passes through a mainly industrial area of the

Chapter 4 136 London Borough of Hammersmith and Fulham: UDP Alterations

borough, but it is also a valuable recreational and transport resource. It is important to enhance its character (it has conservation area status) and environmental quality and to improve the facilities of the industrial area. The council therefore welcomes the initiative of the British Waterways Board to conserve and enhance the intrinsic heritage, landscape and habitat of the waterway system, and in particular the initiative to designate a long distance walk along the whole of the canal from Birmingham to London. It also welcomes the initiative by British Waterways to explore the potential of a canal/rail link in the area which could benefit wider transport initiatives and lead to the sustainable development of the Hythe Road area.

4.103a The canal is a nature conservation area of metropolitan importance and is also bordered by the council also supports the proposals of Groundwork West London to develop a former part of the Old Oak Common depot as a nature conservation park at Old Oak Common Sidings. This site, together with other land adjoining the south side of the canal, is identified as a nature conservation area of borough-wide importance. It is included in safeguarding directions for the East-West CrossRail Link and is therefore likely to be affected by associated railworks. It may also be affected by redevelopment of the adjoining Old Oak Common Sidings. If this is the case the council will expect development to be sympathetic to nature conservation, with provision of replacement habitats, when works are complete.

TELECOMMUNICATIONS POLICY

EN41 TELECOMMUNICATIONS

The council will expect proposals for the installation of external telecommunications equipment, whether for the receipt or transmission of signals, to protect the amenity and appearance of the borough, whilst providing for the operational requirements of the telecommunications operator. The protection of local amenities will be of particular importance in conservation areas and the Thames Policy Area Riverside Area of Special Character. Equipment should normally be placed on existing buildings in preference to purpose-built masts, but must have regard to the visual effect both at street-level and on the skyline. Site sharing will be encouraged.

4.104 This policy deals primarily with transmission equipment, and satellite reception dishes that are not covered by the General Development Order, as amended. The council recognises the Government's general policy to facilitate the growth of new and existing telecommunications systems, and agrees that good telecommunications can benefit an area by attracting new businesses, thus increasing employment, and by reducing the need for travel. The council accepts there are technical requirements governing the location of telecommunications equipment, but believes that informal consultations between the operator and the council at a preliminary stage can help to eliminate conflicts between technical and amenity considerations. The council notes that PPG8, when discussing siting and design, states that: "operators and manufacturers should be aware of the advantages of early informal discussions with relevant planning authorities when they are considering the development of their networks".

The council can provide detailed local knowledge of environmental and amenity issues. This may include the recommendation of potential sites (currently there is a major micro-wave transmitting tower on Site 40 Old Oak Sidings) or the need for

Chapter 4 137 London Borough of Hammersmith and Fulham: UDP Alterations

sensitive design and location in conservation areas and the Area of Special Character. The council acknowledges the need to develop detailed criteria on the preferred location and suitable design of telecommunication equipment. The preparation of these criteria will need thorough consideration of operational requirements and amenity issues and will need the involvement of a variety of interested parties. Because of problems of radio interference resulting from the development of large, prominent structures in the borough, the council will wish to consider the potential interference caused by any new development and require preventive measures where necessary.

Chapter 4 138 London Borough of Hammersmith and Fulham: UDP Alterations

Chapter 4 139 London Borough of Hammersmith and Fulham: UDP Alterations

Appendix 4.7 Metropolitan Open Land and Open Spaces of borough-wide Importance shown on the Proposals Map

NAME OF OPEN SPACE: Area (hectares) Metropolitan Parks

Wormwood Scrubs (MOL)* 68.36

District Parks

Bishops Park and Fulham Palace (MOL) 19.58 Ravenscourt Park 13.35

Local Parks

Eel Brook Common* 7.44 Hammersmith Park 3.30 Hurlingham Park 7.90 Lillie Road Recreation Ground 3.39 Little Wormwood Scrubs* 8.81 Norland North Open Space 2.60 Normand Park 2.61 South Park 8.49 Wormholt Park 3.66

Small Local Parks and Open Spaces

Bayonne Park 1.11 Brompton Park 0.84 Brook Green* 1.80 Cathnor Park 1.06 Frank Banfield Park 1.44 Furnival Gardens 1.78 Gwendwr Gardens 0.47 Marcus Garvey Park 0.63 Parsons Green* 1.37 Queens Club Gardens 0.79 St. Paul’s Green 0.71 St. Paul’s Open Space, Hammersmith Road 0.63 St. Peter's Square 0.79 Wendell Park 1.75 White City Community Garden 0.17 William Parnell Park 1.03

Cemeteries and Open Spaces Adjoining Places of Worship

Fulham Cemetery 5.21 Hammersmith Cemetery 6.53 Kensal Green Cemetery (MOL) 9.45 St. Mary's Cemetery (MOL) 10.07

Allotments

Chapter 4 140 London Borough of Hammersmith and Fulham: UDP Alterations

The Warren (MOL) 5.87

School Playing Fields

Burlington Danes School Playing Fields & Courts 4.65 Latymer Upper School Playing Fields 3.98 St. Paul’s Girls School Playing Fields, Brook Green 0.46

Open Sporting Facilities

Chelsea Football Club, Stamford Bridge 0.78 Fulham Football Club, Stevenage Road 0.28 Hurlingham Club Grounds 15.88 Parsons Green Club, Broomhouse Lane 1.23 Queens Club 2.49 Queens Park Rangers Football Club, Loftus Road 0.73

* Common Land

Appendix 4.8 Notifiable Installations and Associated Consultation Distances

Notifiable Sites

Occupier Consultation Distance (m) BG Transco, Imperial Road, Fulham 60

Pipelines

Operator Building Proximity Distance Consultation Distance (m) (m) Transco 3 6 Transco 6.5 13

Chapter 4 141 London Borough of Hammersmith and Fulham: UDP Alterations

New Appendix

Green Corridors

West London Line – Fulham Road to Chelsea Creek West London Line – Westway to Lillie Road Euston-Watford DC Line

Chapter 4 142 London Borough of Hammersmith and Fulham: UDP Alterations

CHAPTER 5: TRANSPORTATION AND ACCESSIBILITY

RESTATEMENT OF PART 1 POLICY G4: TRANSPORTATION & ACCESSIBILITY 146

JUSTIFICATION FOR PART 1 POLICY G4: 146

INTRODUCTION 146

ISSUES 148 Poor level of personal accessibility 149 Road traffic congestion/overcrowding of passenger rail services 150 Recent trends and predicted future growth in the demand for travel 151 Environmental consequences of transport provision 152 Car parking (both on- and off-street) 153 Public transport service performance 153 Safety and personal security 154 Inadequate co-ordination of transportation planning 154 Economic impact of transport/traffic conditions 155 Enforcement of bus priority/parking/waiting/loading regulations 155 Extension of bus deregulation to London 155 Allocation of resources to different forms of transport 156 International transport dimension 156 The establishment of a Mayor and Greater London Assembly (GLA), together with Transport for London (TfL) 158

POLICY CONTEXT 158 National Context 158

PART 2 TRANSPORTATION AND ACCESSIBILITY POLICIES 175 TN1 TRANSPORTATION PLANNING - OVERALL OBJECTIVE 175 TN2 INTEGRATION OF TRANSPORTATION PLANNING & LAND-USE PLANNING 175 TN3 INTEGRATION OF TRANSPORTATION PROVISION 175 TN4 TRANSPORTATION - PROVISION FOR PEOPLE WITH A DISABILITY 177 TN5 TRANSPORTATION - PROVISION FOR PEDESTRIANS 178 TN6 TRANSPORTATION - PROVISION FOR CYCLISTS 178 TN7 BOROUGH ROAD NETWORK Impact of developmeNt on the borough road network 179

TN12 ROAD TRAFFIC RESTRAINT 180 TN32 TRANSPORT SAFETY - ACCIDENT REMEDIAL MEASURES 181 TN16 TRAFFIC MANAGEMENT/TRAFFIC CALMING 181 TN8 BOROUGH ROAD NETWORK- HIERARCHY OF ROADS 182 TN9 BOROUGH ROAD NETWORK - Road CONSTRUCTION related to development 185 TN10 ROAD CONSTRUCTION 185 TN11 ROAD PROPOSALS 186

Chapter 5 144 London Borough of Hammersmith and Fulham: UDP Alterations

TN11A DEVELOPMENT AND ROAD TRAFFIC REDUCTION 188 TN13 DEVELOPMENT CONTROL TRANSPORT IMPACT ASSESSMENT 189 TN14 PARKING CONTROL 191 TN15A FORECOURT AND OFF-STREET PARKING 192 TN17 PUBLIC TRANSPORT - OVERALL POLICY 193 TN19 PUBLIC TRANSPORT - QUALITY OF ACCESS TO SERVICES 194 TN20 PUBLIC TRANSPORT - PROVISION AND OPERATION OF SERVICES 194 TN22 PUBLIC TRANSPORT - BUS SERVICES 194 TN24 PUBLIC TRANSPORT - COACHES AND TAXIS 196 TN25 PUBLIC TRANSPORT - INTERMEDIATE TRANSPORT PROVISION MODES 196 TN23 PUBLIC TRANSPORT– RAIL SERVICES SAFEGUARDING LAND FOR FUTURE TRANSPORT SCHEMES 197 TN26 PUBLIC TRANSPORT - WATER 198 TN18 PUBLIC TRANSPORT - ACCESSIBILITY OF SERVICES 199 TN21 PUBLIC TRANSPORT - FINANCIAL SUPPORT IMPROVEMENT IN CONNECTION WITH DEVELOPMENT 199 TN27 AIR TRANSPORT - HELICOPTERS 200 TN28 FREIGHT AND SERVICING - ACCESS TO PREMISES 200 TN29 FREIGHT AND SERVICING - USE OF ROADS 200 TN30 FREIGHT AND SERVICING - USE OF RAIL 201 TN31 FREIGHT AND SERVICING - USE OF WATER 202 TN33 TRANSPORT SAFETY - HAZARDOUS WASTES 203 TN34 TRANSPORT STATISTICS AND TRENDS 203

APPENDICES 204

APPENDIX 5.1: CLASSIFICATION HIERARCHY OF BOROUGH ROADS 204

APPENDIX 5.2: SCHEDULE OF ROAD SCHEMES 206

APPENDIX 5.3 PUBLIC TRANSPORT ACCESSIBILITY: THE DERIVATION OF ACCESSIBILITY INDICES AS A BASIS FOR IDENTIFYING PUBLIC TRANSPORT ACCESSIBILITY LEVELS 208 1.0 INTRODUCTION 208 2.0 DERIVATION OF ACCESSIBILITY INDICES 208 3.0 DETERMINATION OF ACCESSIBILITY ZONES 210

APPENDIX 5.4 TRANSPORTATION IMPACT ASSESSMENTS 210

Chapter 5 145 London Borough of Hammersmith and Fulham: UDP Alterations

CHAPTER 5: TRANSPORTATION AND ACCESSIBILITY

RESTATEMENT OF PART 1 POLICY G4: TRANSPORTATION & ACCESSIBILITY

1994 Policy G4 replaced by altered text shown below

3. Land use provision for improvements to the road network will only be made where necessary in the interests of traffic safety or maintaining the free flow of essential traffic

4. The siting, design and layout of development will be required to provide: • easy access by people with a disability • Safe, secure and direct access by pedestrians • Facilities to encourage travel to and from the development by cycling and other sustainable modes of travel and transport.

5. Measures will also be sought, in connection with development proposals, to: • Secure necessary improvements to, and development of, public transport systems and services, including additional stations on the west london line, • Ensure that road safety is not compromised and that the free flow of essential traffic is maintained. • Minimise vehicle parking demand both by controlling the amount of on-site parking provision and by securing the introduction of complementary parking controls and traffic management measures to control off-site parking. • Promote the use of rail and water for freight transport. • Protect residential areas and main shopping streets from the environmental impact of traffic generated by development proposals.

JUSTIFICATION FOR PART 1 POLICY G4:

INTRODUCTION

5.1 The policies of the Transport Chapter form part of an overall transport strategy which deals with much wider range of issues than purely land use, for example the

Chapter 5 146 London Borough of Hammersmith and Fulham: UDP Alterations quality, range and affordability of services. The following paragraphs therefore outline this strategy and its context so that the spirit and purpose of the UDP’s transport policies can be understood. The Council’s Transport Strategy is more fully expounded in its transport planning documents, most recently the Interim Local Implementation Plan for 2002/3.

5.1 5.2 The transportation infrastructure of the Borough has changed relatively little since its major development during the second half of the nineteenth century. The most significant changes in recent times have been: i) the creation of two major new roads:

- the A4, along Talgarth Road and the Great West Road, via the Hammersmith Flyover and the one-way gyratory road system at Hammersmith Centre, and

- the A40(M) extension of Westway along its elevated section to Paddington, together with a short north-south link (the M41, West Cross Route) to Holland Park Avenue; ii) the closure of several local rail passenger services; and iii) the withdrawal of all tram and trolleybus services.

5.2 5.3 In contrast to the relative stability of the infrastructure, however, the demands placed upon it have continued to change and increase. This increasing demand is attributable to two main causes: i) an overall increase in personal prosperity, which has resulted in:

- an increase in many people's appetite for travel,

- more cars being owned and used, and - more goods being transported and consumed; and ii) the increasing centralisation/concentration of many facilities/services, with the result that many of the less prosperous, and more disadvantaged, members of the local community are increasingly being forced to travel further afield to satisfy their basic needs for employment, shopping, hospitals, entertainment/recreation, etc.

5.3 5.4 During the nineteen-sixties and nineteen-seventies, the development of traffic management techniques (such as: on-street parking controls, waiting/loading regulations, one-way streets, mini- roundabouts, re-timing of traffic signals, etc.) enabled additional traffic capacity to be achieved from within the existing road network. There is now little further scope for increasing the traffic capacity of the Borough's roads in this way, although better enforcement of the existing regulations may help.

5.4 5.5 During the 19 80s nineteen-eighties, the transportation planning debate (particularly, in inner London) centred around proposals for securing an integrated fares and ticketing strategy for public transport and the construction of a limited number of major new roads in areas suffering the worst road traffic conditions. There was concurrently a progressive deterioration in the level of enforcement of parking/waiting regulations.

Chapter 5 147 London Borough of Hammersmith and Fulham: UDP Alterations

5.5 5.6 By the end of the 1990s nineteen-eighties decade, London enjoyed integrated fares and ticketing arrangements (which embraced both LT and BR local passenger services) based on the "Travelcard", a zonal fares structure and a London-wide system of concessionary fares - both for elderly people and for people with a transport-related disability. The proposals for major road construction in inner London, however, had been abandoned by the Government, following widespread public opposition (see para. 5.56 below).

5.5a 5.6a In the nineteen nineties, the main issues affecting travel in London included:

- the recognition of the need to reduce the need for travel (particularly by private car), together with requirement to integrate transportation and land use planning;

- improvement in the enforcement of parking regulations, together with the introduction of Controlled Parking Zones (CPZs), since London Boroughs became "Special Parking Areas" (SPAs);

- the impact of the privatisation of the national rail network;

- the recognition of the need to reduce emissions from vehicular traffic, together with the introduction of partial 'technical fixes' such as cleaner fuels and catalytic converters;

- the construction of the Jubilee Line Extension (JLE), Heathrow Express, Docklands Light Railway Extensions, Croydon Tramlink and the reintroduction of passenger services on the West London Line, together with enhanced facilities.

ISSUES

5.6 5.7 The current issues for transportation planning within the Borough are: i) the relatively poor level of personal accessibility available to many Borough residents; ii) the congestion of road traffic and the overcrowding of passenger rail services, particularly at peak travel times - but increasingly throughout the working day; iii) the recent trends and predicted future growth in the demand for travel during the next decade; iv) the environmental consequences of transport provision, in respect of both moving and stationary vehicles including freight and servicing vehicles; v) car parking (both on- and off-street); vi) public transport service performance, both as regards:

a) the quality of service provision (particularly the reliability of bus services), and

b) the level of service provision;

Chapter 5 148 London Borough of Hammersmith and Fulham: UDP Alterations vii) the safety and personal security of travellers (both actual and perceived); viii) the inadequate co-ordination of transportation planning, both within the field of transportation planning itself and also with planning for land-use and economic development; ix) the economic impact of transport/traffic conditions; x) the enforcement of bus priority/parking/waiting/loading regulations; xi) the extension of bus deregulation to London and the consequential threat to the Travelcard; xii) the allocation of resources to different forms of transport; and xiii) the international transport dimension. xiv) the establishment of a Mayor and Greater London Assembly (GLA), together with Transport for London (TfL)

5.7 5.8 These issues are amplified in the following paragraphs.

Poor level of personal accessibility 5.8 5.9 Travel is seldom an end in itself, but rather a means of access to other facilities and services. Personal accessibility is a measure of the ease with which an individual can secure the means to travel to such other facilities/services in a manner which is:

- appropriate to the journey to be undertaken;

- appropriate to the personal circumstances of the potential traveller; - available at the time the person wishes to undertake the journey (or after only a reasonably short, and predictable, delay), taking account of the fact that most journeys involve an outward and a return trip - and availability in only one direction is insufficient; and

- perceived by the potential traveller to provide adequately for the traveller's safety and personal security.

The means of transport which best meets all these criteria is the private car.

5.9 5.10 A substantial majority of Borough residents, however, including many of those living in a household which does have a car available, do not have a car available to them personally for the majority of their travel needs. Other available means of transport currently fail to meet some, or all, of the criteria to a greater or lesser degree. Although by influencing the location, scale, density, design and mix of land uses, planning can help to reduce the need to travel and make it safer and easier to walk, cycle and use public transport.

5.10 5.11 As regards personal circumstances, people and groups who are particularly likely to be disadvantaged in accessibility terms include: - people with a disability, - women,

Chapter 5 149 London Borough of Hammersmith and Fulham: UDP Alterations

- elderly people, - young people, and - people who: - have caring responsibilities, - live at a distance from public transport services, - are unemployed or on a low income, and/or - come from particular ethnic/cultural/linguistic backgrounds.

Personal accessibility is, therefore, a key equal opportunities issue.

5.11 The issue of personal accessibility is also important in the context of: i) the Government's intention to deregulate bus services in London, without any guarantee for the future availability of integrated ticketing (i.e. the Travelcard), and ii) the Government's concern that transport provision should be based on "freedom of choice".

Road traffic congestion/overcrowding of passenger rail services 5.12 At peak travel times the conflict between local traffic and the major radial traffic movements in and out of central London is at its most acute on the roads of inner London. The problems are now so severe that those travellers, who are able to exercise a choice, are increasingly "staggering" their journeys from peak to off-peak travel times and/or from road travel (by car and bus) to rail travel. Much of the Borough now suffers from serious road traffic congestion throughout much of the daytime off-peak period (as well as at peak periods) and rail services (which at peak travel times are already operating at, or very close to, track capacity) are now suffering very severe passenger overcrowding, both on the trains and at the busier stations.

5.13 The extent of these current problems was recognised by the Secretary of State for Transport in his "Statement on Transport in London" (STL) of January 1989, which, in its identification of the challenge facing London's public transport and road systems, states that:

" ... congestion has become particularly heavy at peak times on rail in inner and central London, and certain areas, mainly in inner London, suffer from particularly severe road traffic difficulties. The forecast increases in both rail and road traffic will put further demands on both systems." (STL, para. 5.1)

5.14 It is important, however, to recognise that the way in which congestion manifests itself on the rail and road networks is qualitatively different, particularly in respect of radial commuter journeys to/from work in central London at peak travel times: i) The rail networks are functioning at their maximum operational capacity in terms of the number of trains being operated, and well in excess of their design (or even safe) capacity in terms of numbers of passengers per train and numbers of passengers passing through the busiest stations. The issue of rail overcrowding at peak travel periods, therefore, is one of inadequate passenger-carrying capacity (but see paragraph. 5.24 below). ii) The primary and secondary road network in inner London, on the other hand, is only operating at capacity in terms of vehicle numbers and on the basis of travellers' current modal choice of vehicles - not in terms of the numbers of passengers carried. In

Chapter 5 150 London Borough of Hammersmith and Fulham: UDP Alterations

1987, 1997 in the morning peak period (7am - 10am), some 4,000 2450 LT buses entered central London, carrying 79,000 68,000 people. During the same period 123,000 114,000 cars entered, carrying 162,000 151,000 people. The average occupancy of the buses is 19.8 28 passengers and the average occupancy of the cars is 1.33 passengers. Both types of vehicles have only approximately a third of their seats occupied on average - i.e. two-thirds of the "seats" entering central London by road are empty. Moreover, on the basis that each bus occupies some three times as much road space as one car, buses are five times more efficient than cars, both in their current use of roadspace and in their potential use of roadspace.

The issue of road traffic congestion, therefore, can be seen as one of too many cars - not one of too many people (or too many buses) - seeking to travel at the same time.

5.15 The two issues, and their resolutions, therefore, are qualitatively quite different.

Recent trends and predicted future growth in the demand for travel 5.16 The Secretary of State recognises that, over the period 1983 - 1987:

"The number of commuters travelling into central London during the morning peak increased by 10%. Within this increase there was a switch from road to rail. The number of rail commuters increased by 21% (by 25% on London Underground and by 17% on British Rail) and the number of road commuters fell by 15%. Rail traffic accounted for 76% of the total commuter traffic. The market share taken by private car and bus fell to 14% and 7% respectively and the number of people in cars entering central London during the morning peak fell by 10% ...." (STL, para. 3.5)

Over the same period, the number of people in LT buses entering central London during the morning peak fell by 19%.

5.16a In 1997, over 1 million people were estimated to have entered central London on an average weekday between 7am and 10am. This represents a 5 percent increase on the previous year and continues an upward trend established in 1994. Around 82% used public transport, this proportion remaining almost constant for the last ten years.

The number of people entering central London by surface rail and by underground increased by 8% and by 3% respectively between 1996 and 1997. People entering by car decreased by 1 percent but those entering by motorcycle increased by 9%. The number of people entering by bus, coach and minibus, and bicycle was the same as 1996 (DETR Transport Statistics for London 1998).

5.17 Commuters to central London in the morning peak period appear, therefore, to be opting for the relative reliability of rail travel (albeit with severe in-vehicle overcrowding) rather than the increasing unreliability of road travel (albeit with relative in- vehicle comfort). Road traffic restraint is, therefore, already operating to a significant extent (although in its most inefficient manifestation), with modal switch choices being made by each traveller independently making a personal response to congested conditions on an incremental basis. This results in a continuation of the present unacceptable levels of congestion. Essential traffic (i.e. traffic which has an essential reason for remaining on the congested road network), therefore, is increasingly suffering the maximum adverse consequences of road traffic congestion - and being denied the opportunity of securing any of the benefits which would accrue as a result of measures being taken to ensure the switching of inessential car commuting traffic to a public transport mode or to another time of day.

Chapter 5 151 London Borough of Hammersmith and Fulham: UDP Alterations

5.18 The Secretary of State identifies the predictions of future trends in travel demand to 2001, as follows:

" ... the number of cars owned in London could increase by 22% to 34% to some 2.7m to 3m, and the number of car-owning households could increase by 16% to 23% to between 1.9m and 2.1m. (The estimated total number of households is 2.9m in 2001). Car ownership is presently higher in outer London than inner London ..." (STL, para. 3.9)

" ... indications are ... that demand for transport in London will continue to follow broadly the same patterns as the last five years ..." (STL, para. 3.10)

" ... indications are that by 2001 peak demand for rail passenger journeys may grow by up to 20% and that motor vehicle traffic could grow by the order of 1% to 2% per annum in outer and inner London and by less than 1% in the central area. Passenger movements at London's major airports could rise to between 89m and 114m by the year 2000 ..." (STL, para. 3.12)

5.18a For Hammersmith & Fulham the 1997 National Road Traffic Forecast indicates that between 2001 and 2031:

• car traffic could grow by up to 42%; • the number of cars available could increase by up to 43%; • the number of cars per household could increase by 15%; • the number of households could grow by 24%; • the population could grow by 7%, and that • the population per household could decrease by 13%.

Environmental consequences of transport provision 5.19 Transport contributes some 20% of total CO2 emissions, most of which comes from road transport. Private cars form by far the largest component of road traffic, and emit twice as much CO2 as do buses per passenger-kilometre. Transport is a significant emitter of other gases which also contribute to global warming. Road traffic congestion adds significantly to the pollution effect of exhaust gases (particularly CO2) since stationary traffic and "stop/start" traffic movement results in inefficient combustion of fuel and more unburnt pollutants being emitted. 5.19a There is a clear link between poor air quality and traffic in Hammersmith & Fulham. Road traffic is the main source of nitrogen oxides in London, and in the UK as a whole. The London Research Centre's emissions inventory for greater London shows that road transport accounted for 76% of all nitrogen oxide emissions in 1990. Furthermore, it appears that technical fixes such as catalytic converters have minimal effect in reducing nitrogen oxides as about 75% of journeys made by car in the UK are of 2 to 5 miles and decreasing all the time.

5.19b In March 1997, the United Kingdom National Air Quality Strategy was published setting out new air quality standards to be achieved by the year 2005. Once standards and objectives have been set, then the Government believes that the management of air quality should operate on two levels. Firstly, policies to reduce emissions and to engineer the lowering of ambient levels should be developed and applied universally. The second level involves actions at local level and the introduction of a Local Air Quality Strategy - it is this element of the strategy which will have the most significant impact upon London Boroughs. In accordance with the Act, where air quality standards are

Chapter 5 152 London Borough of Hammersmith and Fulham: UDP Alterations not met, or are not likely to be met, local authorities will declare Air Quality Management Areas (AQMAs) and make action plans for improvements in air quality.

5.20 Congested conditions on the primary/secondary road network also lead to cars diverting onto local roads, and into local residential areas, so as to by-pass the traffic queues. Such roads are not appropriate for such traffic movements, which are highly disruptive to what local residents might reasonably expect to be a peaceful local environment. The intrusion of through traffic, which has no business in the area, simply creates greater potential for pedestrian/vehicle conflict, accidents and environmental pollution.

Car parking (both on- and off-street) 5.21 The issues associated with the parking and waiting of vehicles within the Borough are twofold. Firstly, there is the direct issue of an increasing level of on-street parking stress, both:

- overnight parking, largely attributable to local residents who use their cars during the working day; and

- all-day parking, by car commuters travelling into the Borough during the morning peak travel period.

Secondly, there is the indirect issue relating to the impact of parking controls on road traffic congestion. The extent to which car commuters to inner/central London are able to use their cars is significantly dependent on the availability, and cost, of a car parking space at the work end of the journey.

Public transport service performance 5.22 The quality of public transport service provision, both bus and rail, is affected very seriously by road traffic congestion.

5.23 Buses, in the absence of comprehensive provision of bus priority measures, suffer the delays and uncertain journey times of the generality of road traffic. Buses, however, are vulnerable to two further serious impacts on the quality of their service provision: i) because buses have to stop to pick-up and set-down passengers and because they are unable to divert onto local roads to "by- pass" congested primary/secondary roads, they are demonstrably seen to perform worse than the general traffic stream; and ii) more importantly, because buses make a series of sequential journeys, the uncertainty of their time of arrival at a terminus may materially delay their starting time on a subsequent journey (if running late) or may cause unproductive standing time (if running early) - resulting in the unwelcome feature of "bunching" (which is an inherent feature of unprioritised bus operation in congested road traffic conditions) as a late- running bus, further delayed by a disproportionate "excess" of passengers, is overhauled by a following bus, experiencing a disproportionate "shortage" of passengers.

5.24 Overcrowding on local passenger rail services is also a directly attributable consequence of road traffic congestion (see paragraph. 5.16 above).

Chapter 5 153 London Borough of Hammersmith and Fulham: UDP Alterations

5.25 The level of public transport service provision is also materially affected by road traffic congestion. Both bus and, more particularly, rail operators have to maintain stock levels to provide the peak period services. This level of provision is essential since commuter travel on the normal daily pattern could not otherwise be achieved (see para. 5.16 above), with very serious adverse consequences for both the local economy and the local environment. The maintenance of such stock levels is seldom a cost-effective investment to an operator. A further problem, in respect of rail stock levels, is the relative instability of the peak demand, since it is a secondary choice demand and may not remain a demand once the primary cause of the choice (i.e. road traffic congestion) is removed.

5.26 Bus service levels are also affected in a different way. The 'average' effect of road traffic congestion, leaving aside its unpredictability, is one of delay. Buses are scheduled, therefore, to run significantly slower at times of traffic congestion. Therefore, more buses are required to provide the same level of service at peak travel times in congested conditions than would be required in uncongested conditions. Road traffic congestion, for which buses are not responsible, forces buses to operate significantly less efficiently than they could if protected from the effects of such congestion.

Safety and personal security 5.27 Road safety is an issue in all situations where motor vehicles come into proximity/potential conflict with more vulnerable road users - such as pedestrians (particularly children and elderly people), people with disabilities and cyclists. In congested road traffic conditions, a whole new range of safety hazards is added. Moreover, through traffic diverting along local roads to by-pass congested primary/secondary roads, because of the incompatibility of the activity on those local roads with through traffic movements, also introduces significantly increased potential for accidents in such local roads.

5.28 Inadequate routine maintenance, and the delayed replacement, of time-expired vehicles/equipment, on both the road and rail networks, also create hazards to safety.

5.29 Personal security of travellers, both actual and perceived, is a major influence on people's ability (or willingness) to travel, particularly by public transport. The issue is particularly acute for women, pedestrians (particularly at night), people waiting for public transport services and people travelling on public transport vehicles at periods of low use. Personal security is an important equal opportunities issue.

Inadequate co-ordination of transportation planning 5.30 Decisions relating to different aspects of transportation planning policy are too have too often been taken without full regard either to decisions relating to other aspects of transportation planning policy or to decisions relating to land-use and economic development planning policies. However, there is now a growing recognition of the need to integrate transportation policies: "Developing an integrated transport policy represents a major shift in direction. We don't just want to stop traffic problems getting worse, we actually want to make things better for people and goods on the move." (John Prescott, Deputy Prime Minister, 1997)

Chapter 5 154 London Borough of Hammersmith and Fulham: UDP Alterations

Economic impact of transport/traffic conditions 5.31 The economic consequences of traffic congestion, in particular, have been investigated by the Confederation of British Industry (CBI). In the report of its Task Force, "Transport in London" (March 1989), the CBI estimates that:

"Every British household has to spend at least œ5 per week more than it needs to do on goods and services to meet the costs of congestion on our roads and rail systems." (Para. 1, "Transport in London")

The CBI estimates that the real annual cost of congestion within the national transport system is approximately œ15 billion, rather than the figure of œ3 billion which is usually used, and that two-thirds of this figure relates to waste in London and the South East. These figures may be compared with the overall national expenditure on transport:

"In the UK as a whole expenditure on transport amounted to about œ65 billion in 1987." (STL, para. 6.2)

5.31a The economic consequences of traffic congestion are clearly recognised by those who live and work in the Capital. The London Pride Partnership's 'London Action Programme for Transport 1995-2010' states:

"A survey of London First members in 1995 showed that businesses are concerned about the problems their staff experience in getting to work, the high cost of delivering goods and services due to traffic congestion, under-investment, and difficulties in getting to and from Heathrow. London has the highest road accident rate in England, and road casualties cost London over £1.6 billion a year."

"Companies dependant on road transport for their deliveries and servicing stressed the extra costs caused by congestion - one company alone estimates the additional cost of staffing, fuel and maintenance at £2 million a year. Here again firms are likely to move operations out of London or expand elsewhere if conditions do not improve."

Enforcement of bus priority/parking/waiting/loading regulations 5.32 A significant element of the problem posed by vehicles infringing the regulations is contributed by poor enforcement activity. This is a problem with several components - including, inadequate numbers of traffic wardens, substantial control of the enforcement activity being the responsibility of the police (for whom stationary and bus-priority-related traffic offences are frequently not a high priority), split control of enforcement between the boroughs and the police, lack of court time to process unpaid excess charges/penalty payments etc. The effectiveness of any regulation, however, is overwhelmingly dependent on the perceived certainty of its enforcement. Conversely, and On the positive side, it also has to be recognised that the effectiveness of the enforcement of parking regulations has dramatically improved since the whole Borough became a "Special Parking Area" (SPA) in October 1993, and a new parking control unit was created to enable the Council to discharge its new enforcement responsibilities in respect of all roads in the Borough for which it is the highway authority. The powers in the London Local Authorities Act 1996 also enable the Council use new technology such as CCTV or cameras for bus lane enforcement. These arrangements for the decriminalised system are likely to significantly improve operating conditions for buses.

Extension of bus deregulation to London

Chapter 5 155 London Borough of Hammersmith and Fulham: UDP Alterations

5.33 The extension of bus deregulation to London, apart from posing problems with regard to the future levels of service provision, will also pose a threat to the continuation of integrated ticketing arrangements (such as the Travelcard). Such developments will call into question the future ability of bus services to provide: i) adequate levels of accessibility for many people without access to a car; and/or ii) adequate alternative means of transport for "restrained" car drivers, following the implementation of increasingly rigorous traffic restraint policies to overcome the problem of road traffic congestion.

Allocation of resources to different forms of transport 5.34 The availability of resources for the provision, maintenance and operation of transportation infrastructure will always be less than the demand for such resources. Therefore, it is essential that the most efficient overall allocation is made of the resources available (which is not necessarily the same as the most cost-effective allocation of resources for any single service). The demonstration of such efficiency in the use of resources is likely to be the best means of increasing the overall availability of resources, which will also be necessarily dependent on accurate identification of the needs for, and potential benefits from, specific proposals for future resource allocations. Resources include not just new investment, but also investment in the existing transportation infrastructure - which must itself be managed and operated efficiently. Equally, because the Government recognises that:

" ... the efficiency of the transport system is a key component in the overall performance of the economy ..." (STL, para. 6.2),

"In order to maintain its status as a world city, London requires a modern, efficient transport system which meets the needs of its residents, businesses and visitors while respecting and improving the environment." (RPG3, paragraph. 6.1)

It is essential that both the "user" and the "non-user" benefits/ disbenefits of resource allocations to/within the transportation infrastructure are fully identified and evaluated. Such evaluations are particularly important when comparative assessments are being made in respect of allocating investment to road or rail projects or to projects for public or private transport provision.

International transport dimension 5.35 London's links to the international transport infrastructure pose two further issues for the Borough's local transportation infrastructure, namely: i) Heathrow Airport:

The Airport is by far the busiest international airport in the world, currently handling some 50 over 60 million passengers and in excess of 1.2 million tonnes of cargo per annum and directly employing over 57,000 people. , and is Consequently it is the biggest single generator of traffic in Greater London. All the principal surface access routes (by all transport modes) between the Airport and central London, and 98% of non-interlining passengers (i.e. passengers who are not simply transferring between aircraft) travelling to/from the Airport via central London, pass through the Borough. 15% of the total traffic on the A4/M4 corridor, where it crosses the western Borough boundary, has its

Chapter 5 156 London Borough of Hammersmith and Fulham: UDP Alterations origin/destination at the Airport and a substantial volume of other traffic within the Borough is generated by business developments which have chosen to locate in the area specifically because of its ready access to both the Airport and central London.

The level of surface access traffic generated by the existing terminals (i.e. Terminals 1- 4) at Heathrow Airport places a significant and unacceptable level of demand on the A4/M4 highway corridor, and on the Piccadilly Line which together form the principal surface access corridor between the Airport and central London, despite the introduction of the Heathrow Express to Paddington. The highway corridor is already very severely congested at peak travel times. It is essential that the existing demand for highway capacity is reduced (by providing an additional, high-quality public transport alternatives) and that no additional demand is generated (by providing an additional passenger terminal).

Because of the location of much of the Borough under the main flight path into Heathrow Airport from the east, there is also a considerable environmental impact on people in the Borough from aircraft noise.

Accordingly, the Council: a) actively supports the early implementation of the proposed direct, dedicated, high-quality British Rail link a new service between the city (St Pancras/Kings Cross) and Heathrow Airport, together with improved rail access to destinations north and south of the airport (with direct links to each of the four existing passenger terminals); and b) will respond to any consultation in relation to a planning application for further passenger terminal development at Heathrow Airport, and will make representations to the responsible local planning authority and at any public inquiry to consider such an application, on the basis of the considerations identified in this paragraph. ii) The Channel Tunnel rail link to London (and beyond):

Following the opening of the Tunnel, the initial London Terminal is located at Waterloo. The West London Line (along the Borough's eastern boundary) is, and will increasingly be, required to provide for:

- access to the passenger train servicing/maintenance/ overnight stabling depot at North Pole, Wormwood Scrubs;

- all rail freight movements to/from London and the north, which will be routed via the "Wembley International" Freight Depot, and to/from the Willesden Freightliner Depot; and - all passenger trains passing to/from destinations to the north of London, which will be routed via Kensington (Olympia) Station.

These train movements will place a significantly increased, and increasing, loading on the Line - to the extent that its capacity (and that of the North London Line) to handle local passenger traffic may be is being compromised. The Council, therefore, has a direct strategic interest in proposals to develop both a second main London Terminal (to augment Waterloo) and a second rail link across the Thames in east London the construction of the Channel Tunnel Rail Link (CTRL) to St. Pancras.

Accordingly, the Council will encourage and support proposals to facilitate the diversion of Channel Tunnel related rail traffic (both passenger and freight), which has neither its

Chapter 5 157 London Borough of Hammersmith and Fulham: UDP Alterations origin nor its destination in west or north-west London, away from the West London Line, including proposals to develop: a) an orbital rail route to the south and west of London for traffic not requiring access from/to origins/destinations in London, and b) a new high speed rail link for traffic requiring access from/to origins/destinations in east, central and north-east London, which:

- approaches central London from the east (via Stratford) on the north bank of the River Thames, and b) the early implementation of the CTRL to St. Pancras, together with the provision of an interchange at Stratford c) makes provision for onward connections to existing trunk rail routes serving areas, to the east, north and west of London, in such a way as to maintain a minimum service frequency of 4 trains per hour for all current, and potential, local passenger services (including those identified in paragraph. 5.118 5.107).

The establishment of a Mayor and Greater London Assembly (GLA), together with Transport for London (TfL) 5.35a With the introduction of a Mayor and Assembly for London there will be a new body responsible for delivering an integrated and sustainable transport strategy for London. This new body will be called transport for London (TfL). To enable TfL to deliver the Mayor's integrated strategy it will: • manage the Underground, buses, Croydon Tramlink, and the Docklands Light Railway; • manage the Greater London Authority road network; • regulate taxis and minicabs; • run London River Services; • take responsibility for traffic lights across the Capital; and • have a say in how railways are run in the Capital.

The Borough will continue to deal with local transport issues, and will retain most of its powers. However there will be a duty on the Council to draw up a local implementation plans to give effect to the Mayor's transport strategy.

POLICY CONTEXT

National Context 5.36 The transportation infrastructure of London is an integral part of the regional and national infrastructure. This integration, together with the wide-ranging financial and policy responsibilities of the Department of Transport (DoT) Department of Local Government, Transport and the Regions (DTLR) for some 20% of the national Gross Domestic Product, means that national spending priorities and national policies have a dominant influence on regional and local transportation planning strategies.

5.37 The DoT's DTLR responsibility for expenditure includes local authority expenditure on both roads and public transport and the financing of any shortfall in the operational budgets and the investment programmes of the British Railways Board

Chapter 5 158 London Borough of Hammersmith and Fulham: UDP Alterations

(BRB), Strategic Rail Authority (SRA), London Regional Transport (LRT) Transport for London (TfL) and the Civil Aviation Authority. In addition the DoT DETR has overall policy responsibilities for motorways and trunk roads, civil aviation, the BRB and LRT SRA. The responsibilities of TfL are set out in paragraph 5.35.

Ten Year Transport Plan - Transport 2010 The Ten Year Transport Plan, published in July 2000, is the Government’s long-term strategy for improving the UK’s transport infrastructure and performance over the next ten years. The Plan is intended to build on the Transport White Paper and set out how the Government intends to translate this into action over the next ten years. The Plan outlines the levels of funding which are likely to be made available to fund the proposals, and sets targets that it hopes to achieve over the ten year period.

The Government has pledged to spend a total of £180 billion over the ten year period of the Plan funded from a mixture of public and private sources. Of this, £121 billion will be capital investment, an increase of almost 75% over the last ten years.

This investment will be directed at achieving improvements in the following areas:

• For rail passengers and freight – better track, better trains, better stations and a safer network; • For motorists and road haulage – tackling congestion through better road infrastructure; • For people in towns and cities – new public transport schemes and a host of local improvements; • For people in rural areas – bypasses, regular buses and local schemes; • In London – a substantial package of investment to underpin the Mayor’s strategy, which could include: • ‘quality plus’ standards on all main bus routes; • at least two new tram or guided bus systems; • extending the Docklands Light Railway to City Airport; • East London Line extensions; • CrossRail, or a similar major new east-west link; and • East Thames River Crossings. • The overall aim of the Ten Year Plan is to deliver a better quality of life through: - a faster, safer, more reliable, modern transport system; - a contribution to a cleaner environment; - a fairer society, through better access to jobs and services; and - an improvement in the quality of life for us all.

5.39 TRANSPORT ACT 2000 The Transport Act 2000 enshrined in legislation many of the measures and proposals contained in the Transport White Paper 1998. Although the Act applies throughout England and Wales, in Greater London many of its powers as they apply to London were included in the Greater London Authority Act 1999, described in more detail below.

Chapter 5 159 London Borough of Hammersmith and Fulham: UDP Alterations

As far as Local Transport Plans are concerned the Transport Act includes the following main elements:

1. Local Transport Plans as Statutory Documents – the Act establishes a legal duty on all ‘local transport authorities’ to prepare Local Transport Plans (LIPs in London) as strategic five-year transport plans.

2. Provision for bus Quality Partnerships – voluntary agreements between Local Authorities and bus companies (London Buses in London) covering improvements to bus infrastructure, ticketing and information (but not fares and frequencies). In certain circumstances the Secretary of State may also approve Quality Contracts whereby the Local Authority can specify and let contracts for bus services in a particular area.

3. Introduction of a national concessionary fares scheme giving elderly people the right to half price local bus travel. (In London elderly people are already entitled to free off-peak travel).

4. Road User Charging and Workplace Parking Levy - the Act gives local traffic authorities outside London the power to introduce these charges. London Local Authorities already had such powers under the GLA Act 1999.

5. The establishment of the Strategic Rail Authority and the provision for better regulation of, and a more co-ordinated and policy-led approach to, the railway industry.

Environment Act 1995 The Environment Act 1995 placed a duty on the Secretary of State to prepare and publish a strategy containing policies with respect to the assessment and management of the quality of air. The strategy must include statements with respect to:

• standards relating to the quality of air; • objectives for the restriction of the levels at which particular substances are present in the air; and • measures which are to be taken by Local Authorities and other bodies for the purpose of achieving those objectives.

The Act also requires each Local Authority to carry out a review of the quality of air within its area. If as a result of the review one or more of the air quality standards or objectives are not being achieved, or are not likely to be achieved, within the area the Act requires the Local Authority to declare an air quality management area. Within one year of the creation of an air quality management area the local authority must prepare an action plan in pursuit of the achievement of air quality standards and objectives, through the use of powers exercisable by the Local Authority.

The Secretary of State may give directions to the Local Authority if air quality standards and objectives are not being achieved or as considered appropriate for the implementation of any European Union obligations or international agreements. The Secretary of State may also direct Local Authorities to work jointly in exercising their functions.

The Environment Act 1995 amends the Road Traffic Regulation Act 1984 to allow traffic regulation orders to be made for preserving or improving the amenities of the area through which the road runs for air quality purposes.

Chapter 5 160 London Borough of Hammersmith and Fulham: UDP Alterations

5.38 5.41 The Government's general policy aims for transport are:

- to increase efficiency and reduce real unit costs;

- to protect, or improve, safety; and

- to conserve the environment.

The have been set out in a variety of individual policy statements relating to specific topics. There is no overall national transportation policy statement.

The Government has set out its criteria for the development of an integrated transport system in it's 1998 White Paper on the Future of Transport 'A New Deal for Transport: Better for Everyone'. Future transport and land use proposals should be appraised in terms of their contributions to: • Environment • Safety • Economy • Accessibility • Integration

The White Paper recognises that transport should contribute to our quality of life not detract from it. This should be achieved through integrated transport policies, which are defined as:

• integration within and between different types of transport - so that each contributes its full potential and people can move easily between them; • integration with the environment - so that our transport choices support a better environment; • integration with land use planning - at national, regional and local level, so that transport and planning work together to support more sustainable travel choices and reduce the need to travel; • integration with policies for education, health and wealth creation - so that transport helps to make a fairer, more inclusive society.

1994 paragraphs 5.39 and 5.40 deleted

5.40a The Royal Commission on Environmental Pollution's twentieth report "Transport and the Environment - Developments Since 1994" sets out its views on the future direction of transport policy. The main conclusions were that:

• forecast traffic growth is economically, environmentally and socially unacceptable; • fuel price increases and improvements in vehicle technology so far planned will not in themselves bring about the requisite improvements in air quality or reductions in emissions of greenhouse gases; • there is a need for rapid innovation in vehicle technology; better integration of public transport systems, better integration of transport and land use planning; better traffic management policies; and policies to encourage modal shift.

PLANNING POLICY GUIDANCE NOTE 13: TRANSPORT (2001)

Chapter 5 161 London Borough of Hammersmith and Fulham: UDP Alterations

5.41 The Government has recently revised PPG13 and following a long consultation period the final version was published in March 2001. Revised PPG13 is primarily aimed at promoting better integration, both between planning and transport and between different transport modes, and achieving more consistent implementation of the existing policy approach (in accordance with the Transport White Paper) to:

• promote more sustainable transport choices; and • reduce the need for travel, especially by car.

The implementation of PPG13 will help to ensure that the planning system plays its part in the Government’s strategy on sustainable development, including promoting social inclusion and revitalising towns and cities as places to live and work.

In order to deliver the objectives of PPG13 Local Authorities are required to:

• ensure that strategies in the development plan and in the local transport plan complement each other and that consideration of development plan allocations and local transport investment and priorities are closely linked; • focus major generators of travel demand in city, town and district centres and near major public transport interchanges; • locate local and day to day facilities which need to be near their clients in local centres so that they are accessible by walking and cycling; • accommodate housing principally within existing urban areas, with increased densities for both housing and other uses at locations which are highly accessible by public transport, walking and cycling; • in rural areas, locate development for housing, jobs, shopping, leisure and services in local service centres which are designated in the development plan to act as focal points for housing, transport and other services; • use parking policies to promote sustainable transport choices and reduce reliance on the car for work and other journeys; • give priority to people over traffic in town centres, other areas with a mixture of land uses and local neighbourhoods, and consider giving more road space to pedestrians, cyclists and public transport in these locations; • ensure the needs of disabled people are taken into account in the implementation of planning policies and traffic management schemes, and in the design of individual developments; and • protect sites and routes which could be critical in developing infrastructure to widen transport choices for both passengers and freight movements.

1994 paragraphs 5.41-5.46 deleted

Planning Policy Guidance Note 6 (1996) - Town Centres and Retail Development 5.46a Guidance on traffic management and parking in town centres is contained in Planning Policy Guidance 6 (1996) - Town Centres and Retail Development. This sets out the need for a comprehensive management strategy addressing car, public

Chapter 5 162 London Borough of Hammersmith and Fulham: UDP Alterations transport, cycle and pedestrian access, as well as through traffic and the need for deliveries.

The Road Traffic Reduction Act 1997 5.46b The Road Traffic Reduction Act requires the Council to prepare and submit to the Government reports assessing the existing levels of road traffic and forecasts of traffic growth for those roads which the Council is the highway authority. There is also a requirement to specify targets to reduce local traffic levels, or to reduce the rate of growth in the levels of such traffic where appropriate. The Council would need to make clear in its reports the reason for not setting targets.

5.46c The Government began its consultation in January 1998 on draft guidance for local authorities in relation to the preparation of reports under the Act. The Secretary of State considers that formal traffic reduction targets for London under this legislation should be considered as part of this national consultation and with due regard to the role of a potential Greater London Authority.

5.46d The Government's current guidance identifies the need to ensure that the Borough's Road Traffic Reduction reports are fully integrated with: • its transportation and land use policies as set out in the Unitary Development Plan • its Interim Transport Plans/Local Implementation Plans • any Local Air Quality Management Action Plan needed to meet the National Air Quality Strategy Objectives (refer to paragraphs 5.19-5.20)

National Road Safety Objectives Tomorrow’s Roads: Safer For Everyone - The Government’s Road Safety Strategy And Casualty Reduction Targets For 2010 (DETR 2000)

5.47a In 2000 the Government set new ten year casualty reduction targets and launched a new road safety strategy in its report “Tomorrow’s Roads: Safer for Everyone”. The new targets aim to help Local Authorities focus on achieving a further substantial improvement in road safety over the next ten years. By 2010 the Government expects Local Authorities to have achieved the following targets compared with the average for 1994-98:

• a 40% reduction in the number of people killed or seriously injured in road accidents; • a 50% reduction in the number of children killed or seriously injured; and • a 10% reduction in the slight casualty rate, expressed as the number of people slightly injured per 100 million vehicle kilometres.

5.47b The Government is particularly concerned about Britain’s poor child pedestrian record compared with other European countries. Child safety is therefore a special focus in the Strategy, particularly in terms of reducing the number of children who are killed or injured in road accidents.

5.47c Reducing road casualties in accordance with the new objectives will also contribute to the targets for overall accident reduction set by the “Saving Lives: Our Healthier Nation” White Paper (DoH 1999).

Chapter 5 163 London Borough of Hammersmith and Fulham: UDP Alterations

Towards An Urban Renaissance: Report By The Urban Task Force (DETR 1999) 4.48 The Government set up the Urban Task Force in 1998 with the aim of establishing a new vision for urban regeneration founded on the principles of design excellence, social well being and environmental responsibility within a viable economic and legislative framework. The Task Force, headed by Lord Richard Rogers, published its report “Towards an Urban Renaissance” in June 2000.

The report states that “urban neighbourhoods should be attractive places to live. This can be achieved by improving the quality of design and movement, creating compact developments, with a mix of uses, better public transport and a density which supports local services and fosters a strong sense of community and public safety….cities, towns and urban areas need to have the right transport and other infrastructure to function as strong economic and social units. But we cannot ignore the environmental and health damage, as well as increasing congestion, caused by growth in car traffic. Our recommendations recognise that one of the best ways to attract and absorb more people into urban areas is to reduce the need for car travel. This requires policies that discriminate in favour of walking, cycling and public transport”.

The main recommendations of the report in respect of transport are to:

• introduce Home Zones, pursuing tested street designs, reduced speed limits and traffic calming measures; • place Local Transport Plans on a statutory footing, with targets for reducing car journeys, and increasing year on year the proportion of trips made on foot, bicycle and public transport; • commit a minimum of 65% of transport expenditure to walking, cycling and public transport over the next ten years; • extend a well-regulated franchise system for bus services to all English towns and cities if services have not improved substantially within five years; • set a maximum standard of one car parking space per dwelling for all new urban residential development.

REGIONAL/LONDON CONTEXT

Greater London Authority Act 1999 5.49 The Greater London Authority Act 1999 paved the way for the election of a Mayor for London and the reinstatement of a strategic London-wide authority in the form of the Greater London Authority (GLA) in May 2000 (comprising an elected Assembly). This new democratic structure for London has created a new context for London Boroughs’ local transport plans.

The overall objectives of the Mayor and GLA, as set out in the 1999 Act, are to:

• promote economic development and wealth creation in Greater London; • promote social development in Greater London; and • promote the improvement of the environment in Greater London. • In seeking to improve London’s environment the Mayor and Assembly must have regard to: - the health of Londoners; - achieving sustainable development; and

Chapter 5 164 London Borough of Hammersmith and Fulham: UDP Alterations

- equality of opportunity.

The Mayor is responsible for developing strategies in respect of:

• Transport • Spatial Development • London Development Agency • Culture • Biodiversity • Waste • Air Quality • Noise

He is also going to produce an Energy Strategy.

The Mayor’s Manifesto stated that “the single most important priority for the Mayor and Greater London Authority will be to solve the crisis of London’s transport system. For a city the size of London an efficient transport system is vital for both business and leisure. The present gridlock on our roads, the overcrowding on the tube and rail networks and the inefficiency of bus services are massive problems for the public and business alike. Traffic congestion clogs our streets, poisons the air we breathe and threatens jobs by making London a less attractive location for investment …London’s Mayor must break this log-jam.”

Mayor’s Transport Strategy (GLA July 2001) 5.50 Section 141 of the GLA Act sets out the GLA’s general transport duty, stating that the Mayor shall “develop and implement policies for the promotion and encouragement of safe, integrated, efficient and economic transport facilities and services to, from and within Greater London”. In order to enact this duty the Act requires that the Mayor produces a Transport Strategy containing his transport policies and proposals over a ten-year timescale up to 2011. This strategy will cover both passenger and freight transport.

The Mayor and GLA, through their transport body Transport for London (TfL), will oversee and co-ordinate transport policy and provision in London. The integration of all transport functions except national rail under one umbrella organisation (TfL) should result in a much more consistent and co-ordinated approach to transport planning in London.

Section 145 of the GLA Act 1999 requires Boroughs to prepare a Local Implementation Plan (LIP) following the publication of the final version of the Mayor’s Transport Strategy. TfL have yet to notify boroughs as to when they require this document. In the meantime we are preparing annual Borough Spending Plans (BSPs) based on the 2002/3 Interim Local Implementation Plan (ILIP). The Mayor published his Transport Strategy in July 2001, and this provides the policy context for each Borough’s ILIP/BSP. The ILIP/BSP Advice stresses the importance of ILIPs and BSPs being consistent with, and setting out how they will implement, the Mayor’s Transport Strategy.

Under Section 159 of the GLA Act 1999 the funding arrangements have been changed so that “TfL may give financial assistance in respect of expenditure towards safe, integrated, efficient and economic transport facilities or services”. This financial assistance, which will be in the form of a grant, replaces the allocation of Supplementary Credit Approval (SCA) by the Government Office for London (GOL). The main rationale for the allocation of grant by TfL will be to ensure the delivery of the Mayor’s Transport

Chapter 5 165 London Borough of Hammersmith and Fulham: UDP Alterations

Strategy.

The Mayor’s Transport Strategy draws on the Government’s Transport White Paper 1998 and its Ten Year Transport Plan (2000). It contains policies and proposals which are designed to contribute to the following wider objectives:

• Supporting economic development, employment and regeneration; • Integrating land-use and transport policies; • Promoting social inclusion and equality of opportunity; and • Improving health and the environment.

In order to achieve the wider objectives above, the draft Strategy sets out the Mayor’s key priorities for increasing the efficiency, capacity, reliability and quality of London’s transport system. These key priorities are:

• Reducing traffic congestion; • Investing in improvements to the Underground; • Improving bus services; • Better integration of national rail into London’s transport system, and the creation of a high frequency ‘turn-up-and-go’ metro service on suburban lines; • Supporting Boroughs’ local transport initiatives including walking and cycling schemes, safer routes to schools, road safety and road maintenance; • Achieving more reliable and efficient distribution of goods and services, while minimising their environmental impacts; • Bringing forward new integration initiatives to improve key interchanges; • Improving the accessibility of London’s transport system; • Increasing the capacity of London’s transport system through major new public transport schemes.

The Strategy expands in some detail on how the Mayor intends to achieve the above objectives and priorities through his transport policies, and outlines the role for the Boroughs in assisting in the implementation of these policies. Among the significant measures proposed by the draft Strategy are a considerable increase in funding for public transport, particularly the Underground, funded partly through revenue raised by the proposed congestion charge to be introduced in central London.

The Strategy also addresses:

• The need for better integration between different modes of transport, particularly public transport; • Simplified and better integrated ticket and fare structures; • Improving the national rail network in London; • Improving bus reliability and convenience; • Tackling traffic congestion; • Improving London’s streets for pedestrians, cyclists, car users and residents; • Freight, delivery and servicing • Accessible transport; • Major new transport schemes; and • International transport.

In addition to the Mayor’s Transport Strategy, the Council will take into account some of the Mayor’s other Strategies in developing its ILIP and subsequent LIP. The most relevant of these will be the Spatial Development Strategy, initial proposals for which

Chapter 5 166 London Borough of Hammersmith and Fulham: UDP Alterations were published in May 2001 (see below). Other relevant strategies will include those on Economic Development, Air Quality, Ambient Noise, and Energy.

Mayor’s Draft Air Quality Strategy 5.52 A pre-consultation draft of the Mayor’s Air Quality Strategy was issued to London Boroughs in January 2001. The draft acknowledges the serious problem that poor air quality poses to human health and also to the economy through lost productivity and a reduction in London’s attractiveness. It highlights the fact that London’s air quality is the worst in the UK and amongst the worst of any city in Europe, and aims to improve air quality “to the point where it poses no risk to health or quality of life”.

The draft points to the fact that motor vehicles are now by far the largest single contributor to poor air quality in London, and therefore sees transport policy as one of main ways in which air quality can be improved, as well as using vehicle and fuel technology. To this end, the draft sets out the following four facets to its approach to reducing emissions from road vehicles:

• traffic reduction; • promoting the cleanest conventional engine technologies and smaller vehicles; • cleaning the emissions of vehicles now on the road through fitting new technology, and improving vehicle maintenance and driving style; and • promoting and adopting alternative fuels – gas, electric and fuel cells.

The close relationship between Mayor’s Air Quality Strategy and the policies and proposals of his draft Transport Strategy is seen as crucial in achieving a reduction in vehicle emissions. The main transport policies proposed by the Mayor which will contribute to the air quality targets are those designed to reduce traffic levels and achieve a modal shift from private cars to public transport, cycling and walking. Low emission zones are one of the ways the draft Air Quality Strategy suggests transport policy could contribute to the targets. Better traffic management to achieve a smoother flow of traffic with less congestion is another contribution which transport policy can make, as smoother driving and moving traffic is less polluting than stop-start traffic in congested conditions. Educating the public about the problems of air pollution and what they can do about it is another important element of the Strategy.

Towards The London Plan: Initial Proposals For The Mayor’s Spatial Development Strategy (May 2001) 5.53 The Mayor published his initial proposals for the Spatial Development Strategy, entitled ”Towards the London Plan”, in May 2001 setting out his draft land-use planning polices for London. Following consultation on this up to the end of July 2001, the Mayor intends to publish his draft London Plan towards the end of 2001.

“Towards the London Plan” sets out the main challenges facing London and the proposed policy directions for tackling them. Inevitably, one of these challenges is transport, and the plan sets out how the Mayor intends to integrate London’s transport and land-use policies under the heading “ensuring an accessible city”.

The London Plan aims to provide the land-use policy framework to support the implementation of proposals in the Transport Strategy, by shaping the locational patterns that impact on transport demand, especially housing and employment. In particular, the Plan will identify locations across London that are appropriate for higher density development due to their existing or potentially good public transport

Chapter 5 167 London Borough of Hammersmith and Fulham: UDP Alterations connections.

The Plan will use the public transport network as the framework for development, ensuring high trip-generating development locates in areas of good public transport accessibility, or that significant improvements are proposed where public transport is inadequate. It proposes to encourage a closer relationship between where people live and work through mixed-use developments, and to facilitate the use of alternatives to the private car. This will include the setting of London-wide maximum car parking standards, and ensuring that developments provide good access for pedestrians and cyclists. Larger development proposals will have to be accompanied by comprehensive transport impact assessments aimed at minimising the use of private cars.

The Plan will also address the transport of freight, and in particular making greater use of rail and water based systems to take freight off the roads. It will also cover commuter coach services, national and international rail services, and air transport and its implications for spatial development in London.

RPG Strategic Guidance For London Planning Authorities (1996) 5.54 As well as complying with the Mayor’s draft Transport Strategy and national planning guidance, the ILIP needs to take into account Regional Planning Guidance. In the case of London this is RPG3.

RPG3 states that “in order to maintain its status as a world city, London requires a modern, efficient transport system which meets the needs of its residents, businesses and visitors while respecting and improving the environment. The Government’s sustainable development strategy places the highest priority on the need to strike the right balance between the ability of transport to serve economic development and the ability to protect the environment and sustain future quality of life. The objective of this guidance in relation to transport and land use is to set out a strategic framework within which London’s local authorities can develop plans which promote economic prosperity and personal accessibility for all, with less demand for travel overall and greater protection of the environment”.

In pursuit of these goals, the Government has the following strategic objectives for transport in London:

• to maintain and enhance the quality of London’s international transport links; • to enhance the quality of commuter services by rail and underground; • to promote greater use of less polluting modes of transport, subject to the need to maintain competitiveness and safety; • to facilitate access to the central business districts and ease of movement within them; • to plug major gaps in the road and rail network.

RPG3 recognises that the planning system has an important part to play by encouraging patterns of land-use which will reduce the need to travel and which take maximum advantage of existing or proposed public transport connections, consistent with the principles of sustainable development (paragraphs 6.1-6.3).

Strategic Planning Guidance For The River Thames (RPG3b/9b: 1997)

Chapter 5 168 London Borough of Hammersmith and Fulham: UDP Alterations

5.55 The overall planning policies which guide Government planning policy in relation to the use of the River Thames and riverside are:

• to encourage and harness the transport potential of the River; • to promote and increase the use of the River for recreational purposes; • to safeguard land uses related to these functions; and • to maintain and improve public access to, along and across the River, taking account of the needs of disabled people.

Traffic Management And Parking Guidance (DETR: 1998) 5.56 This guidance provides the framework for traffic management and parking controls throughout Greater London to serve a wide set of environmental, social and economic objectives. High priority is accorded to parking control initiatives which encourage a shift from the use of the car for personal travel to public transport, walking or cycling; and to traffic management programmes which reduce accidents, congestion, pollution and car dependency.

The core principles of the guidance are:

• the management of traffic and road space should be based on the movement of people and goods; • a more strategic approach to parking with the objective of securing a shift to more sustainable transport modes for travel to London’s numerous town centres; • greater emphasis on measures to assist buses, cyclists and pedestrians, thereby opening up a wider set of transport choices for all and reducing dependency on the car; • a clearer recognition of the needs of all road users, especially people with disabilities or difficulties with walking; • a clearer recognition that regional and local traffic strategies must be comprehensive, and a better awareness of the environmental impacts of traffic, in particular the need to reduce greenhouse gases; • greater realism in appreciating what can and cannot be achieved in an acceptable manner within current legislation and with available levels of resources; • better interchange between modes, particularly from bus and car to rail and underground, and from public transport to walking - this must be adequately reflected in the local management of traffic and parking; • more emphasis on the monitoring and assessment of the impacts of programmes - simple, easy to understand, output measures must become more prevalent and influential.

LPAC Strategic Advice 5.57 The London Planning Advisory Committee (LPAC) provided strategic London- wide planning advice to London Boroughs before the GLA was created. Its functions have now been subsumed within the GLA, but its guidance and advice is still relevant

Chapter 5 169 London Borough of Hammersmith and Fulham: UDP Alterations until the publication of the Mayor’s draft Spatial Development Strategy.

In its “Advice on Strategic Planning Guidance for London” (February 1994) LPAC sets out the following transport policy objectives:

• Reduce the amount of travel; • Co-ordinated land use and development decisions to ensure that the movement of goods and peoplearising from development takes place in a sustainable way; • Consistency in investment decisions relating to the management of, and charging regimes for, London’s transport system; • Encouragement of the use of modes of transport that are more energy efficient and environmentally friendly, including walking and cycling, and which will help reduce dependence on the car; • Restrain traffic, especially the car; • Using appropriate parking, physical and pricing measures, particularly for journeys to Central and Inner London and town centres; • No net increase in strategic highway capacity available to the car, except where necessary for the regeneration of East London; • Co-ordinated highway network management, with comprehensive traffic calming and better traffic regulations enforcement to increase the efficient use of road space, with greater priority for non-car based users including freight; • Improve Public Transport; • Financial commitment from the Government to modernise and augment both surface and underground rail networks, including light rail, as part of a structured investment programme; • Improved bus services in terms of reliability, frequency and extent of service provision, quality of service, personal security, and public image and acceptability; • Provision of co-ordinated public transport systems, the use of which is not discouraged by physical constraints on some users, inadequate service information, uncoordinated ticketing arrangements, difficult interchange or fares that are out of line with the costs and charges for other modes (paragraph.5.7).

LPAC Supplementary Advice 5.58 LPAC also issued supplementary advice, setting out detailed strategies relating to various issues, including:

Parking Advice (1997) 5.59 The report covers three main types of parking - on-street, public off-street and private non-residential (PNR). Implicit in LPAC’s parking advice and the overall transport strategy is the desire to bring about a shift in travel from the car to more environmentally friendly modes. The Parking Advice also indicates that the amount of parking provision has only a very limited influence on the relative prosperity of London’s town centres.

Equally fundamental to LPAC’s Parking Advice, and indeed a major influence on its wider view of the relationship between transport and land use, is the concept of public

Chapter 5 170 London Borough of Hammersmith and Fulham: UDP Alterations transport accessibility. LPAC took the view that the PTALs methodology developed by Hammersmith & Fulham is the most appropriate methodology for use across London. LPAC recommended the use of PTALs for determining parking standards for A2/B1 land uses, and explore further some of the issues arising from the application of public transport accessibility to development control.

The report also recommends the production of a parking plan, together with rigorous enforcement of parking restrictions, as fundamental measures to implementing parking policy.

A Strategy For Walking In London (1997) 5.60 This report provides greater detail of the walking element of LPAC’s overall Transport Strategy as set out in Policy Statements TN24 and TN25 in its 1994 Advice. People will walk further and more frequently where conditions are favourable and take account of the principles of good urban design. LPAC has set an overall target to increase walking from 34% of all trips within London to 39% over the next 10 years. For more information refer to the ILIP sections on Walking and Safer Routes to School.

The London Cycling Strategy (1997) 5.61 The London Cycling Strategy was published jointly by LPAC and the London Pride partnership. It includes the National Cycling Strategy targets to double cycle use by 2002 and double it again by 2012 based on 1996 levels. The main target proposed is a 10% modal share for cycling in London by 2012. There are associated targets for employers to provide facilities at the workplace for at least 10% of their employees to cycle to work and that provision for customers by retailers and service providers should be similar. For more information refer to the ILIP section on Cycling.

Road Traffic Reduction In London 5.62 LPAC published its “Strategy for Road Traffic Reduction in London” in February 1998. The strategy identifies road traffic reduction targets for all of London with a 15% reduction in traffic levels across the Capital recommended in order to achieve the objectives of the report. The strategy outlines a policy framework, based on an integrated land use planning and transport approach within which the Boroughs could meet these targets. For more details refer to the ILIP section on Road Traffic Reduction.

Sub-Regional (West London) Context 5.63 For the purposes of the ILIP process the term ‘sub-region’ is used to describe a grouping of Boroughs within a specific sector of London. There are several sub-regional groupings or partnerships within London, which relate to discrete geographical areas. These partnerships submit joint package bids for funding in the form of an ITP or ILIP/BSP (see figure 3).

5.64 The London Borough of Hammersmith and Fulham is a participant in the following sub-regional package bids:

• West London Transport Strategy • Green Areas • South West London Transport Conference (SWELTRAC) • Park Royal Partnership.

Chapter 5 171 London Borough of Hammersmith and Fulham: UDP Alterations

These are described briefly below, and in more detail in the package bid common statements at the end of the ILIP.

West London Transport Strategy is agreed West London Alliance - a joint public- private sector partnership that includes the seven Boroughs of Brent, Ealing, Hammersmith and Fulham, Harrow, Hillingdon, Hounslow and Richmond together with a number of private sector organisations under the umbrella of West London Leadership. The Strategy focuses on improving orbital transport corridors, improving key transport interchanges, implementing traffic reduction measures, and developing major infrastructure projects such as CrossRail. It sees the West London Transit proposal being developed by Transport for London as a key element of its strategy (see section on Pan London Themes).

Green Areas is a partnership currently led by the London Borough of Hounslow, which also includes Hammersmith and Fulham, Wandsworth, Ealing and Transport for London. This partnership expands on the concept of the London Bus Priority Network by developing a ‘whole area’ approach to improvements for public transport users together with pedestrians and cyclists. To date, one of four Green Areas schemes to have been implemented has been pedestrian and bus priority improvements around Hammersmith Broadway.

SWELTRAC (South West London Transport Conference) is a partnership consisting of 11 local authorities in South-West London and neighbouring Surrey, together with Transport for London, Railtrack and bus and rail operators. The aim of the partnership is to improve local orbital transport links to better serve the dispersed trip patterns that arise in south and west London. SWELTRAC has been very successful in securing funding since its formation in 1994 and has delivered a number of schemes along specific orbital corridors.

Park Royal Partnership consists of the London Boroughs of Brent, Ealing and Hammersmith and Fulham, together with a number of transport agencies and private sector representatives. The package bid covers the Park Royal industrial estate, the largest industrial estate in Europe, which spans all three Boroughs. Since its formation six years ago the partnership has been successful in securing funding to improve sustainable transport access to the industrial area in order to assist its regeneration. However, there are still considerable improvements to be made (see figure 4).

These sub-regional partnerships each contribute to the key priorities and objectives of the Mayor’s draft Transport Strategy, particularly those relating to reducing traffic congestion, improving public transport including its accessibility, enhancing integration between sustainable modes, and improving conditions for pedestrians and cyclists. The underlying central objective of the sub-regional package bids is to achieve a modal shift from private car use to public transport, walking and cycling.

The sub-regional partnerships in which the Council is involved reflect the fact that the problems of transport do not recognise Borough boundaries, and that many journeys are inter-Borough. By virtue of its location on the main routes into Central London from the west Hammersmith and Fulham suffers more than other Boroughs from through traffic, both by road and public transport. It also attracts a considerable number of inward journeys from neighbouring Boroughs for employment and other purposes, many of which are orbital journeys that are less well catered for than radial journeys. For these reasons it is important for the Council to work with neighbouring Boroughs, public transport organisations, Transport for London, the Highways Agency, other relevant

Chapter 5 172 London Borough of Hammersmith and Fulham: UDP Alterations agencies and the private sector.

In addition to the above formal partnerships the Council will liaise and work with neighbouring Boroughs and other agencies on cross-Borough issues such as air quality, road traffic reduction, congestion charging, and public transport improvements.

The Council also bids for funds from a number of pan-London package bids including the London Cycle Network and the London Bus Priority Network/ London Bus Initiative. These are also described in more detail in the common statements in the Appendix.

LOCAL CONTEXT

5.65 The Council is committed to the aims and objectives of the Mayor’s Transport Strategy, and its transport policies are largely consistent with those of the Mayor. The Council has been at the forefront of developing innovative and radical transport planning initiatives in London aimed at reducing the adverse impact of motor transport and encouraging the use of alternatives. The Council’s corporate purpose is to improve the quality of life for everyone in the Borough by delivering high quality services; tackling poverty, disadvantage and discrimination; creating a safer and healthier environment; and helping to develop a strong and dynamic local economy.

The Council’s transport policies have been developed through the Unitary Development Plan (UDP) review process and reflect national and regional planning guidance. They also build upon various Council strategies such as Best Value, Local Agenda 21, Social Inclusion, Health, Air Quality, Regeneration and the Environmental Policy Action Plan. These have been brought together with London-wide (e.g. LCN, LBPN) and sub-regional strategies (e.g. West London Transport Strategy) in the Borough’s local transport plan, formerly the ITP and now the ILIP.

The Council’s objectives for improving and integrating local transport to deliver efficient access and sustainability, while ensuring that full account is taken of regeneration and development opportunities, accord with the objectives of the Mayor’s draft Transport Strategy. The ILIP addresses the needs of all road users, while giving particular emphasis to reducing the need to travel, particularly by car, and responding to the needs of pedestrians, cyclists and public transport users, within an overall framework of infrastructure improvements and making the best use of existing road space.

The Council is keen to develop an inclusive, partnership approach with the Mayor and Assembly in developing London’s Transport Strategy and working together on its implementation to improve the environment and health of those who use London’s transport system.

The Council’s Transport Vision Within the context of the Mayor’s Transport Strategy, the Council’s 2002 / 2003 ILIP aims to provide a framework for a safe, accessible, efficient, integrated and environmentally sustainable transport system for people and goods. The Council will seek to achieve this by: i. giving a high priority to providing for the needs and safety of ‘vulnerable’ travellers (including people with a disability, pedestrians and cyclists) and to improving the mobility of, and accessibility to facilities for people with a disability;

Chapter 5 173 London Borough of Hammersmith and Fulham: UDP Alterations

ii. maintaining a road network which is sufficient to cater for essential traffic movements, with a presumption against any increase in road capacity except where there would be specific local benefits; iii. promoting traffic management and traffic calming measures so as to protect residential areas and main shopping streets from the environmental impact of through traffic; iv. promoting traffic restraint and traffic reduction policies so as to reduce road traffic congestion and air pollution, particularly by:

• strictly controlling the provision of car-parking spaces in developments, • progressively extending controlled parking zones and strengthening controls in all areas of the Borough experiencing on-street parking stress, and • relating the intensity of development to public transport accessibility; • developing a road traffic reduction strategy which will identify traffic reduction targets and be developed as part of a London-wide or sub-regional strategy; • seeking improvements to, and the development of, public transport systems and services, including measures to improve interchange and extend bus priority, so as to achieve a better level of service provision, quality of service and accessibility; • promoting measures to reduce the environmental impact of freight traffic and encouraging measures to expand the use of rail and water for freight transport.

The Council has developed a five-year implementation programme of schemes and policy measures based on the above policies and the related London-wide, sub-regional and Borough strategies. The framework in Figure 6 shows the relationships between the various policy areas and proposed schemes, together with the linkages for feeding back the results of public participation and monitoring into policy development.

In developing the 2001 / 2002 ITP the Council undertook public consultation through the Citizen’s Panel which has helped to shape the priorities for transport initiatives in the Borough. The Council has also recently received public comments through the Unitary Development Plan review process which have contributed to the development of its overarching transport policies. The results of this public consultation, which are described in more detail in chapter 6, demonstrated widespread support for schemes and initiatives which address issues such as traffic congestion, pollution, road safety, poor conditions for pedestrians and cyclists, road maintenance, poor interchange and inadequate / unreliable public transport. The proposed schemes and initiatives included within the ILIP have been developed to help resolve the aforementioned transport problems at a local and West London level.

The Council’s strategic aim to restrain unnecessary car use, particularly for commuting to and from work, is complemented by its policies for improving the performance and accessibility of public transport, for enhancing conditions for cyclists and for making improved provision for pedestrians – particularly in town centres. Furthermore, the improvements planned for public transport will provide attractive, reliable, frequent and accessible services, both as a primary means of travel for the majority of Borough residents who are without the use of a car, and also as an acceptable alternative means of travel for people who either choose not to use, or are restrained from using, their cars in the Borough].

Chapter 5 174 London Borough of Hammersmith and Fulham: UDP Alterations

1994 paragraphs 5.47-5.74 deleted

PART 2 TRANSPORTATION AND ACCESSIBILITY POLICIES

TN1 TRANSPORTATION PLANNING - OVERALL OBJECTIVE

The Council, in formulating its detailed policies for transportation planning, will have regard in all cases to the overall objective of providing adequate accessibility for persons and goods to all land uses, consistent with:

- protecting the safety of the individual; - maintaining (or securing) a satisfactory local environment; and - meeting the particular accessibility requirements of people with a disability.

5.76 Such an objective is essential if the welfare of Borough residents and the viability of the local economy is to be ensured. In giving substance to its overall policy objective, the Council has had regard to the interrelated nature of transport and development and has attempted, therefore, to formulate an integrated transport policy.

5.77 Although it is recognised that local transport problems cannot be resolved independently of strategic policy making, the Council considers that the needs and wishes of local communities must be taken fully into account when strategic policy decisions are being determined.

TN2 INTEGRATION OF TRANSPORTATION PLANNING & LAND-USE PLANNING

TN3 INTEGRATION OF TRANSPORTATION PROVISION

1994 Policy TN2 and TN3 replaced by altered text shown

Development will only be permitted if, in relation to its location and scale, it is accessible by a range of means of transport. In particular: a) Land uses that are major generators of travel and transport demand will only be permitted to locate in the borough’s town centres and near to public transport interchanges, and in locations highly accessible other than by private car; and b) The amount of development on individual sites will be determined having regard to the level of public transport accessibility and, in the case of residential development, accessibility to an appropriate range of services and facilities, in

Chapter 5 175 London Borough of Hammersmith and Fulham: UDP Alterations accordance with development standards S1 and S2. TN2 Integration of Transportation and Land Use Planning

5.78 The relationship between land-use and transportation is fundamental and, at any location, improvements in accessibility can be achieved either by improving transport facilities or by reducing the need for travel through an appropriate rearrangement of land-uses, or by a combination of both. The Council considers, for example, that developments which generate large numbers of journeys (particularly at peak times) should be located only where public transport services are adequate or can be improved. PPG13, March 2001, says that local authorities should:

Focus land uses which are major generators of travel demand in city, town and district centres and near to major public transport interchanges. City, town and district centres should be preferred over out of centre transport interchanges, which should not be a focus for land uses which are major generators of travel demand;

Actively manage the pattern of urban growth and the location of major travel generating development to make the fullest use of public transport. This may require the phasing of sites being released for development, in order to co-ordinate growth with public transport improvements, and ensure it is well related to the existing pattern of development;

Take into account the potential for changing overall travel patterns, for instance by improving the sustainability of existing developments through a fully co-ordinated approach of development plan allocations and transport improvements; and

Locate day to day facilities which need to be near their clients in local service centres, and adopt measures to ensure safe and easy access, particularly by walking and cycling. Such facilities include primary schools, health centres, convenience shops, branch libraries and local offices of the local authority and other local service providers. Local planning authorities should also encourage the provision of leisure and entertainment facilities serving local catchments and make provision for attractive local play areas, public open space and other recreational facilities in locations likely to be accessible without the use of a car.

The council’s approach is in line with and builds upon the advice in PPG 13. Rather than just ensuring a choice of modes of access, the council seeks to ensure that access by walking, cycling and public transport are emphasised and that car journeys to access development are reduced and restrained, through the provision of high quality alternatives, limitation of car parking spaces and development of Travel Plans. Our approach to particular land uses is given in policies xxx.]

5.79 It is important, for example, that a short journey to local shops or to a doctor's surgery, which would ordinarily be made on foot, can be made in safety and by a route which is sufficiently attractive to encourage walking. Equally for a journey of two or three miles, say, to the district general hospital or to a major shopping centre, it is important that a bus service is easily accessible, and that the trip can subsequently be completed with no more than one change of vehicle (and no changes, wherever possible) and without excessive waits. The council has adopted an approach under which improved accessibility allows for higher plot-ratios (the ratio of volume of development on a site to the size of the site itself). The council has established six bands of accessibility, which are used to determine plot-ratios; so the better the public transport accessibility the higher the plot-ratio; and the poorer the accessibility, the lower the plot ratio The method is described in Appendix 5.3, Standard S1 and S2. Policy TN2 is also related to Policies TC1, SH9, CS2A and E1 which designate town centres and identify them as preferred

Chapter 5 176 London Borough of Hammersmith and Fulham: UDP Alterations location for major developments. The council has also published, as Supplementary Planning Guidance, a map indicating the current relative PTALs throughout the borough.

TN4 TRANSPORTATION - PROVISION FOR PEOPLE WITH A DISABILITY

1994 Policy TN4 replaced by altered text shown below

1. Development will not be permitted unless, in terms of its design and layout, it would facilitate ease of access by people with a disability and others with impaired mobility, to and from public transport facilities and car parking areas that directly serve the development, to town centres and local neighbourhoods, and to schools, local shops and services.

2. Proposals to enable ease of access to public transport services and facilities will be welcomed and encouraged.

5.80 The transportation needs of people with a disability will never be adequately addressed unless those needs are considered as an integral part of the principal decision-making process, rather than as a well-intentioned afterthought. Moreover, it is only by taking account of the needs of people with a disability at this initial stage that it will eventually become possible, in the longer term, to ensure equity of treatment, as regards transportation provision, for all people, whether or not they have disability. Other people with impaired mobility include women and men who have caring responsibilities, elderly people, young people and people from ethnic minorities who may be deterred from going out because of concerns for personal security.

5.80a Part III of the Disability Discrimination Act (DDA), which covers access to goods, facilities and services, is being implemented in two stages. Since October 1999, service providers have been obliged to take reasonable steps to change practices, policies or procedures which make it impossible or unreasonably difficult for disabled persons to use a service. From 2004, service providers will have to take reasonable steps to remove, alter or provide reasonable means of avoiding, physical features that make it impossible or unreasonably difficult for disabled persons to use a service. The Council will therefore carefully consider any proposals to ensure they accord with the requirements of the DDA and any further guidance addressing accessibility issues. The Council will therefore carefully consider any proposals to ensure they accord with the requirements of the DDA and any further guidance addressing accessibility issues.

The council recognises its responsibility in implementing good street design and interchange arrangements to public transport services from the street and may seek support and funding to ensure that bus stops, particularly in the vicinity of new development, provide access for accessible bus services to meet the needs of people with disabilities and to ensure the kerbsides can be kept clear for buses to service such stops. The council may propose physical alterations to the highway or footway, such as the introduction of bus boarders, which will improve accessibility to wheelchair users.

Encouragement will be given to Railtrack and/or London Underground Ltd. to progress improvements to the accessibility of rail stations, particularly when associated with modernisation and redevelopment, to achieve the principle of a core network of accessible stations with lifts and escalators. However, the council’s powers in this area are limited

Chapter 5 177 London Borough of Hammersmith and Fulham: UDP Alterations

The council’s requirements in relation to on-site access are stated in Policies EN11 and HO6 and Standard S4.

TN5 TRANSPORTATION - PROVISION FOR PEDESTRIANS

1994 Policy TN5 replaced by altered text shown below

Development will not be permitted unless, in terms of its design and layout, it would facilitate direct, convenient and safe walking routes to town centres and local neighbourhoods, and to schools, local shops and services and public transport facilities.

5.81 It is essential that the Council gives a high priority to providing adequately for the needs of pedestrians for three principal reasons: i) walking is far-and-away the predominant mode of transportation in the Borough (either as the totality, or as part, of virtually every journey made); ii) pedestrians are one of the most vulnerable classes of traveller (and the largest) in terms of both real and perceived threats to their safety and personal security; and iii) the quality of the local environment is of particular importance to pedestrians, and most particularly to children.

TN6 TRANSPORTATION - PROVISION FOR CYCLISTS

1994 Policy G2 replaced by altered text shown below

1. Development will not be permitted unless, in terms of its design and layout, it would provide for direct, convenient, safe and secure facilities for cyclists as appropriate to the nature and scale of the development, together with cycle parking and (other than in the case of residential development) changing facilities in accordance with development standard S20.1,

2. Where appropriate land will be safeguarded for the formation of the london cycle network and complementary local cycle networks as shown in Figure 5.1.

5.82 The London and Local Cycle Networks are almost entirely on existing highway and public rights of way, so it is anticipated that little or no safeguarding will be required. However, there may be occasions where redevelopment of sites will give the opportunity to provide high quality, segregated cycle facilities.

In all circumstances, the council will have regard to the Guidelines issued by the Department of Transport, Local Government and the Regions (DTLR), particularly as regards:

The segregation of cyclists and pedestrians, unless pedestrian activity is low; and

Chapter 5 178 London Borough of Hammersmith and Fulham: UDP Alterations

The needs of elderly people and people with a disability being taken into account in the design of all cycle schemes.

The Council recognises the importance of cycling and its value as a cheap and efficient means of transport which has negligible adverse effect on the environment. As a mode of transport it improves health and fitness, and is often quicker than alternative modes, especially in congested areas. With the majority of journeys being under five miles, provision for cycling forms an important part of the initiatives to reduce traffic levels and to improve air quality. The provision of safe and convenient cycle routes and facilities will improve the mobility of many people without access to a car, and people who prefer to cycle, and could complement public transport services (e.g. by increasing the catchment area of LUL/BR stations and/or by reducing the peak period demand for such services). In the longer term, the provision of an increasingly comprehensive network could lead to reduced demand for road and vehicle parking space, with consequent environmental and economic benefits.

5.83 The London Cycle Network (LCN) aims to provide a network of safe and convenient cycle routes linking residential areas with all the major centres of employment, retailing, leisure and transport across the Capital. The Council is also introducing local cycle routes to complement LCN routes in the Borough. These routes are shown at Fig 5.1. The development of the network of cycle routes will improve the safety and environment of existing cyclists and encourage more people to cycle. Local measures, such as cycle lanes and facilities for cyclists at main road junctions, would significantly improve safety and convenience for cyclists where there are particular problems, especially on the main road network. It is essential that all cycleways should be clearly and appropriately marked so that their function is clearly apparent to all road users.

5.84 The Council nevertheless recognises that there are some disadvantages inherent in the increasing use of bicycles. Because of their physical vulnerability, cyclists are subject to a considerably higher injury risk than most other road users except pedestrians, particularly where cyclists are in competition with other vehicles for shared roadspace. Moreover, as a very substantially higher proportion of "new" cyclists previously travelled by public transport than travelled by car, significant improvements have to be achieved in order to influence car travellers to cycle. Without this transfer, an insignificant reduction in road traffic congestion will be achieved at the cost of a significant reduction in public transport service levels and/or revenue income to public transport operators. The National Cycling Strategy (NCS) published in 1996 has established a National target of doubling the amount of cycling from 1996 to 2002 and doubling it again by 2012. To achieve these targets as endorsed by LPAC and the London Pride Partnership, comprehensive provision needs to be made for cyclists.

PPG 13 (paragraph 78) says that local authorities should produce cycle strategies and should actively seek to establish partnerships with other public bodies, commercial organisations and voluntary sector groups. Paragraphs 79 and 80 detail the types of measures which such strategies should contain.

TN7 BOROUGH ROAD NETWORK IMPACT OF DEVELOPMENT ON THE BOROUGH ROAD NETWORK

Chapter 5 179 London Borough of Hammersmith and Fulham: UDP Alterations

TN12 ROAD TRAFFIC RESTRAINT

1994 Policy TN7 and TN12 replaced by altered text shown

Develoment will not be permitted if it would give rise to additional hazards to road safety, or impair the flow of essential traffic

5.85 The Borough's road network fulfils a variety of hierarchical functions and, to achieve the objectives of this policy, it is essential that the Borough's roads are grouped into a hierarchical network which permits these competing objectives to be addressed in the most efficient manner - with different roads fulfilling predominantly different functions.

5.93 It is the view of the Council that any road traffic restraint policy must be agreed at a strategic level and be applied on a regional or sub-regional basis. Such a strategically determined restraint policy must both be implemented consistently throughout the area to which it applies and be capable of being adequately enforced. The Council intends to play its part in achieving a viable and fair policy of traffic restraint throughout London.

5.94 The principal traffic restraint technique currently being adopted is parking control. The Council is aware that parking controls alone cannot restrain through traffic (i.e. vehicles making journeys whose origin and destination are both outside controlled parking zones). Consideration will continue to be given, therefore, to the development and implementation of measures capable of restraining through traffic. In order to meet future road traffic reduction and air quality targets, the Council will therefore work with the Mayor, the GLA and other parties to develop traffic restraint techniques to achieve these targets (see also policy TN11A).

5.85 Essential traffic is ranked in the following order of priority, according to types of road: • Local Access Roads • Emergency vehicles • Pedestrians • Cyclists • Buses, and other vehicles available for public use • Cars being used by people with disabilities • Taxis and motorcycles • Vehicles on non emergency medical and personal social service journeys • Commercial vehicles and cars servicing local homes or business premises

Borough Distributor Roads: i) All the above categories plus motor traffic accessing land and property within any local area bounded by the strategic route network and London distributor roads

London Distributor Roads All the above categories plus motor traffic accessing the strategic route network, to and between town centres and around, but not within, local areas

Strategic Routes all the above categories plus traffic accessing to national and international transport networks and longer distance traffic traversing the region.

Chapter 5 180 London Borough of Hammersmith and Fulham: UDP Alterations

The road hierarchy is shown on Fig 5.2 and at Appendix 5.1.

The council aims to reduce and restrain motor traffic in accordance with the Mayor’s Transport Strategy. Therefore traffic restraint and measures to promote site access by walking, cycling and public transport will be the primary means of accommodating travel demand, rather than the alternative of promoting off-site road improvements. Chapter 4 of PPG 13 gives an indication of the means which are available to restrain car trips and promote alternatives:

Provision of secure cycle parking and changing facilities and safe pedestrian and cycle routes

Provision of facilities for public transport, such as bus stops and lay-bys

Specifying the number of parking spaces and their size, including those for disabled people;

The management and use of parking spaces, so that, for example, priority is given to certain categories of people, e.g. disabled people, people with children, visitors or cars with more than one occupant;

The removal of parking spaces (other than those for disabled people)after a specified period, or when access to the site is improved by public transport, walking and cycling (such as when a bus route is introduced to the site);

The provision of information to staff and visitors about public transport, walking and cycling access to the site, including information for disabled people.

The provision of travel plans

In appropriate circumstances, where a proposed development will impact on the local highway network in a manner which could have implications for safety, planning permission will be made conditional upon the developer carrying out a safety audit and implementing an approved safety plan.

TN32 TRANSPORT SAFETY - ACCIDENT REMEDIAL MEASURES

1994 Policy TN32 deleted

TN16 TRAFFIC MANAGEMENT/TRAFFIC CALMING

The Council will seek in all instances to reduce the possibility of conflict between pedestrians and other vulnerable road users (such as cyclists, people with a disability, etc.) and motorised vehicles, (particularly "through" traffic and heavy goods vehicles), by means of appropriate traffic calming and/or traffic measures/techniques. Particular consideration will be given to the treatment of areas which are predominantly residential in character and of the main shopping areas. All proposals will be the subject of detailed consultation, initially with the emergency services and subsequently with the public (particularly local residents).

Chapter 5 181 London Borough of Hammersmith and Fulham: UDP Alterations

5.102 The intention of this policy is to complement those other policies in the Plan which relate to environmental protection and traffic restraint/reduction by directly seeking to create a local environment on a human scale both by excluding motor traffic, which has no business in the area, and by minimising the intrusion/impact of motor traffic, which has business requiring it to be in the area.

5.103 "Traffic calming" is a design-based approach to managing traffic in residential areas and on main roads which aims to significantly reduce the dominant impact of motor traffic in urban areas and to improve the appearance/environment of the streetscene through the introduction of features which: i) regulate the flow of traffic; ii) emphasise to motorists the need to restrict their speed; iii) take full account of the particular needs of pedestrians and cyclists and persons with a disability; and iv) form an environmental improvement, for example, in their planting and landscaping content.

In developing detailed traffic calming proposals, the Council will seek in all instances to avoid use of traffic calming techniques or other measures which would impede buses, cause discomfort to bus passengers or divert traffic onto any roads which are used at present by buses where this would cause delay to bus passengers. TN8 BOROUGH ROAD NETWORK- HIERARCHY OF ROADS

1994 Policy TN8 replaced by altered text shown below

Development affecting the borough’s road network will be regulated according to the council’s hierarchy of roads shown in appendix 5.1 and figure 5.2, as follows

Tier 1: Strategic routes Development will not be permitted if it would prejudice the effectiveness of the strategic route network to provide safe and unobstructed road connections to national and international transport networks, to provide for long distance and commercial traffic to traverse the region, or to reduce traffic demand on lower tier roads. Direct frontage access from development sites to such routes will be resisted unless there is no prospect of alternative access to a lower tier road, and the particular section of frontage concerned already performs lower tier functions, and the safe flow of traffic will be maintained. Proposals likely to increase car commuting into central london along such routes will be resisted.

Tier 2: London distributor roads Development will not be permitted if it would prejudice the effectiveness of these roads to provide links to the strategic route network, provide access to and between town centres, and distribute traffic to and around, but not within, local areas.

Chapter 5 182 London Borough of Hammersmith and Fulham: UDP Alterations

Tier 3: Borough distributor roads Development will not be permitted if it would prejudice the effectiveness of these roads to distribute traffic to land and property within any local area bounded by the strategic route network and london distributor roads, or introduce additional through traffic on them.

Tier 4: Local access roads Development will not be permitted if it would prejudice the effectiveness of these roads to provide safe and convenient access to individual properties, or result in their use by through traffic.

5.86 The classification of roads to fulfil different functions has implications for areas adjacent to them, and for their uses. It does allow, however, proper account to be taken of the functions intended for different roads when development proposals are under consideration.

5.87 In the short term, local access roads and, to a lesser extent, local distributor roads, and development related to them, will benefit from measures which will downgrade them as traffic routes in order to improve environmental conditions for essential traffic and allow them to fulfil better their local access function. It is the Council's intention that proposed developments fronting on to the primary and secondary road network should have regard to environmental conditions in terms of land-use, internal room arrangements and sound insulation measures.

5.86 The borough's road network fulfils a variety of hierarchical functions and, to achieve the objectives of this policy, it is essential that the borough's roads are grouped into a hierarchical network which permits these competing objectives to be addressed in the most efficient manner - with different roads fulfilling predominantly different functions The council has adopted a hierarchical classification for the road network in the borough, in accordance with the London Road Hierarchy set out in RPG3. This is as follows: i) Strategic Routes: - to provide for the longer journeys and, in particular, for those by buses and goods vehicles;

- to link London effectively to the national road system; and

- to reduce traffic demand on secondary roads so that, in association with traffic restraint policies, they can provide an adequate level of service and, in turn, relieve local roads of through traffic.

These roads include motorways, primary roads and priority (red) routes and coincide with the Transport for London Road Network (TLRN) ii) London Distributor Roads whose function is: - to provide links to the strategic route network;

- to give access to strategic centres for short and medium distance traffic;

- to provide the main bus routes with the provision of bus priority measures where appropriate, and ;

Chapter 5 183 London Borough of Hammersmith and Fulham: UDP Alterations

- to distribute traffic to and around, but not within, local areas.

All London Distributor Roads within the borough have been "designated" (under the terms of the Designation of Roads in Greater London Order, 1986) "for the purpose of facilitating the movement of traffic". These designated roads, together with the trunk roads, are considered by the DTLR to form "a strategic network of the most important routes for traffic movement within London, connecting to the M25 and major routes throughout Britain".

Guidance on potential developments alongside designated roads is given in RPG3 (also refer to policy TN13 and Supplementary Planning Guidance). iii) Borough distributor roads, whose function is: - to distribute traffic within a local area bounded by strategic and London roads, but not to carry through traffic (i.e. traffic which has neither its origin nor its destination within that area).

- to cater primarily for traffic movements within the borough

Borough distributor roads may be subject to measures to restrict the speed of general traffic flow. Restrictions on the types of vehicle which can pass along the road may be introduced as part of an agreed traffic restraint or reduction strategy.

Some categories of frontage development are not suited to this category of road, particularly at critical junctions - refer to policy TN13 and Supplementary Planning Guidance. iv) local access roads, whose function is: - to provide final access to destination only.

- primarily for use by residents and pedestrians.

Local roads will frequently provide opportunities to provide safer routes for cyclists and pedestrians by introducing measures to displace through-traffic.

The strategic, London distributor, borough distributor and certain local access roads are shown in Fig. 5.2 and on the Proposals Map. A schedule of individual roads is included as Appendix 5.1 to this chapter. The first two tiers of the hierarchy correspond with the road hierarchy in RPG3, Strategic Guidance for London Planning Authorities, May 1996, and the third and fourth tiers represent subdivisions of RPG 3’s third category, Local Distributor and access roads, a division which is suggested by RPG3 itself. A periodic review of road classification is undertaken in parallel with UDP review and alteration.

The classification of roads to fulfil different functions has implications for areas adjacent to them, and for their uses. It also allows proper account to be taken of the functions intended for different roads when development proposals are under consideration.

In the short term, local access roads and, to a lesser extent, borough distributor roads, and development related to them, will benefit from measures which will improve environmental conditions for essential traffic (as set out in paragraph 5.90) and allow them to fulfil better their local access function. It is the council's intention that proposed developments fronting on to the strategic and London distributor road network should

Chapter 5 184 London Borough of Hammersmith and Fulham: UDP Alterations have regard to environmental conditions in terms of land-use, internal room arrangements and sound insulation measures.

TN9 BOROUGH ROAD NETWORK - ROAD CONSTRUCTION RELATED TO DEVELOPMENT

TN10 ROAD CONSTRUCTION

1994 Policy TN9 and TN10 replaced by altered text shown

1. Development requiring the off-site construction or improvement of roads will not be permitted where such construction or improvement would increase the overall capacity of the borough road network and is proposed as the sole measure to provide for increased transport demand.

2. The off-site construction or improvement of roads in connection with development proposals will only be acceptable where:

(a). The development and associated road works are promoted to support identified physical, social and economic regeneration;

And the road works would:

(b). Realise a qualitative gain for the local community in terms of living conditions and road safety; and

(c). Are accompanied by complementary measures to minimise travel and transport demand and to increase accessibility to and from the development by a range of means of transport; and

(d). Improve accessibility for essential traffic and make a positive contribution to the efficient and effective working of the borough’s hierarchical road network.

5.88 The approval of the Secretary of State for Transport is required for any proposed scheme either directly relating to a designated road or relating to another road which would directly affect traffic on a designated road. The Council is statutorily required to notify the Secretary of State of any such proposal. The Department of Transport Circular (4/86) advises that:

"... the Secretary of State will wish to ensure that there is a consistent approach to the management of traffic on the strategic network. In considering traffic management proposals affecting this network, he will need to be satisfied that they are aimed at facilitating the movement of traffic and reflect the function served by the network as a whole."

The Secretary of State has subsequently delegated his responsibilities/duties, in this matter, to the Traffic Director for London. The Secretary of State (or the Traffic Director), therefore, effectively has a right of veto over any proposal which will result in a reduction in the traffic-carrying capacity of the strategic road network.

Chapter 5 185 London Borough of Hammersmith and Fulham: UDP Alterations

5.89 The Council considers that any policy which seeks to cater for the unrestrained demand for car travel by creating additional road capacity overall is totally inappropriate in inner and central London. Accordingly, it will resist any attempt to cater for the full potential peak demand for car travel, or to increase overall highway capacity (given existing levels of public transport provision and parking controls), on that part of the road network for which it is the highway authority.

5.90 The Council will consider, however, the possibility of appropriate alterations to the Borough road network to facilitate industrial/commercial access and the opening up of vacant sites for development, to provide bus lanes (or other bus priority measures) and cycle lanes, to permit improvements to be made to the local pedestrian environment of a street, and to permit through traffic to be diverted away from local roads onto the primary/secondary road network. In each case, such alterations will be subject to there being no overall increase in the highway capacity available for through traffic movement.

5.91 The responsibility for highway planning within the Borough is will be shared with the Department of Transport GLA (see policy TN8 TN7). Where a Council proposal involves or directly affects a designated TLRN road, the Council is currently obliged to consult the Traffic Director for London who must respond within a month (see para. 5.88 above). will be required to notify Transport for London. Any road schemes advanced in conjunction with development proposals will be the subject of consultation with the GLA, TfL and the public at a suitable stage of the development control process.

Policy G2 explains the context for development “necessary to support the physical, social and economic regeneration objectives of the UDP.” See also policy TN11A and Appendix 5.4.

TN11 ROAD PROPOSALS

1994 Policy TN11 replaced by altered text shown below

Land will be safeguarded for the following road proposals as shown on the proposals map:

T7 – Hammersmith town centre – revised pedestrian/ highway arrangements.

5.92 The Council has no current proposals, other than those in the schedule of proposals and shown on the proposals map, for constructing or widening any road, or seeking the setting back of any development. Consideration is being given, however, to the possibility of bringing forward road schemes at some future date, in respect of the following locations: It is intended that Hammersmith Centre has a revised pedestrian/highway arrangement. In developing future proposals for Hammersmith Centre, the council recognises the need to improve conditions for all road users, but particularly for pedestrians and public transport users.

Any proposals by the council will emphatically not provide for any increase in the capacity of the complex network of road junctions, which collectively constitute the Hammersmith Centre gyratory traffic system, to handle any additional vehicular traffic overall. Strenuous efforts will be made, however, to improve the reliability of journey

Chapter 5 186 London Borough of Hammersmith and Fulham: UDP Alterations times, particularly for essential traffic, within the constraints set by the existing overall capacity of the system.

Proposals for pedestrian movement will ensure that there is a convenient network of safe and direct pedestrian routes linking the shops in King Street, the main business area east of Butterwick, key development sites, the public transport interchange and the Town Park. The council considers that the quality of the pedestrian environment will play a vital role in improving the character and quality of the overall environment of the Town Centre and will be a key factor in ensuring the success of the Centre.

The possibility that some re-arrangement of the existing road layout may be the most appropriate way of achieving these objectives has not been discounted, but, if such proposals were forthcoming, they would be the subject of extensive public consultation.(T7)(see also UDP site 27).

1. Hammersmith Centre - revised pedestrian/highway arrangements: In developing future proposals for Hammersmith Centre, the Council recognises the need to improve conditions for all road users, but particularly for pedestrians. Any proposals by the Council will emphatically not provide for any increase in the capacity of the complex network of road junctions, which collectively constitute the Hammersmith Centre gyratory traffic system, to handle any additional vehicular traffic overall. Strenuous efforts will be made, however, to improve the reliability of journey times, particularly for essential traffic, within the constraints set by the existing overall capacity of the system. Proposals will facilitate the creation of a Town Park linking the public transport interchange and King Street, which has long been a key planning objective of the Council.

Proposals for pedestrian movement will ensure that there is a convenient network of safe and direct pedestrian routes linking the shops in King Street, the main business area east of Butterwick, the public transport interchange and the Town Park. The Council considers that the quality of the pedestrian environment will play a vital role in improving the character and quality of the overall environment of the Town Centre and will be a key factor in ensuring the success of the Centre.

The possibility that some road construction and some rearrangement of the existing road layout may be the most appropriate way of achieving these objectives has not been discounted, but, if such proposals were forthcoming, they would be the subject of extensive public consultation.

2.. Hythe Road - traffic management scheme: Hythe Road provides the sole vehicular access to the Hythe Road Industrial Improvement Area. In an area with many older industrial buildings and limited off-street car parking, Hythe Road is heavily parked, restricting the width of the road and hampering the flow of traffic. The Council will be bringing forward detailed proposals to secure unobstructed movement of vehicles in the most critical section of Hythe Road running eastwards from the junction with Salter Street.

3.Old Oak Common Lane - road access to Old Oak Common Sidings/Old Oak Sidings: The purpose of any proposed scheme would be to open up two land-locked areas of derelict railway land, which it is anticipated will become surplus to operational requirements during the term of the Plan, for largely industrial development.

Chapter 5 187 London Borough of Hammersmith and Fulham: UDP Alterations

4.Hythe Road - extension: The purpose of a proposed scheme, which would be considered in conjunction with any proposed scheme for location 3, would be to provide significantly improved road access to the Hythe Road/Salter Street areas.

5.Fulham Centre - pedestrianisation: The Fulham Centre Traffic Management Scheme, which involved four permanent point road closures, allows the pedestrianisation of parts of the prime shopping sections of Jerdan Place and parts of Farm Lane and Vanston Place. The scheme also allows scope for some short-term shoppers' car parking, improved servicing arrangements and environmental improvements. Future proposals, will form part of a package of measures (including North End Road pedestrian improvements and a footway reconstruction programme) aimed at rejuvenating this Commercial Improvement Area.

6.Uxbridge Road/Askew Road - revised junction layout: This junction has a poor accident record, and provides inadequately both for pedestrians crossing and for vehicles turning. The Council is considering bringing forward an accident remedial proposal for the junction. Such a proposal could involve either alterations to the existing traffic signalled layout or the provision of a small roundabout, associated in each case with improved pedestrian crossing arrangements.

7.Sands End - area traffic management/calming measures: Consideration is being given to options for introducing traffic management/calming measures in local roads in the area to the east of Wandsworth Bridge Road/New King's Road/King's Road, with the objective of removing through traffic from the area. In the event that a traffic management/calming option is adopted which removes/changes the need for other schemes as currently proposed, such proposed schemes would be reviewed and amended, as appropriate.

TN11A DEVELOPMENT AND ROAD TRAFFIC REDUCTION

Development that would give rise to a significant increase in travel and transport demand will only be permitted if the scheme includes measures to accommodate that demand without giving rise to a significant overall increase in vehicular road traffic or additional roadside parking, as determined by transportation impact assessment carried out in a accordance with appendix 5.4. and in the context of the council’s road traffic reduction policies and targets.

5.92a In order to reduce road traffic congestion a reduction is required in the number of cars on the roads, particularly at peak times. The principal traffic restraint measures currently operated by the Council are on and off-street parking controls, together with controls on development. However, additional measures are required to maintain a satisfactory local environment and cater for essential traffic to enhance the vitality and viability of the Borough.

The kinds of measures which can be taken are given in PPG 13 (March 2001), paragraphs 76-92. They include;

• Provision of secure cycle parking and changing facilities and safe pedestrian and cycle routes • Provision of facilities for public transport, such as bus stops and lay-bys • Limitation, management and future removal of car parking spaces • Delivery arrangements • Road and junction layouts

Chapter 5 188 London Borough of Hammersmith and Fulham: UDP Alterations

• Planning obligations to secure improvements in walking, cycling and public transport • Production of travel plans.

5.92b By reducing the use of the car, congestion will be reduced and hence public transport will become more reliable and conditions for pedestrians and cyclists will improve - this in turn will result in a reduction in the number of road casualties and air quality will be improved. Businesses will also benefit as deliveries will become less prone to hold ups and less time is wasted sitting in traffic. All these factors will improve the health and quality of life for those who live and work in the Borough.

Policies G4, TN2 and TN9 are key elements of the council’s approach to traffic reduction. The Mayor of London intends to introduce congestion charging to central London.

5.92c In accordance with the 1997 Road Traffic Reduction Act, the Borough is required to produce Road Traffic Reduction Reports. These reports are to be fully integrated with: • the wider land use and transport strategy as set out in the UDP • the Local Implementation Plan (LIP) • any Local Air Quality Management (LAQM) Action Plan needed to meet the National Air quality Strategy (NAQS) Objectives.

These reports have now been incorporated into the Borough Spending Plan/Local Implementation Plan system as the means of implementing the Mayor of London’s Transport Strategy, which has adopted a target of zero growth in traffic in Inner London by 2010. This represents a significant reduction on unrestrained growth rates.

5.92d The Greater London Authority (GLA) Bill includes powers to introduce congestion charging and workplace car parking levies. The Council considers that any such proposals should be developed as part of a London-wide or sub-regional framework for road traffic reduction. Such a policy must be implemented consistently throughout the area to which it applies and be capable of being adequately enforced. The Council intends to play its part in achieving a viable and fair policy of traffic restraint throughout London.

TN13 DEVELOPMENT CONTROL TRANSPORT IMPACT ASSESSMENT

All development proposals will be assessed for their contribution to traffic generation and their impact on congestion, particularly on bus routes and on the primary road network, and against the present and potential availability of public transport, and its capacity to meet increased demand.

Where a development is expected to generate more than a specific number of trips per day, or during peak hours, the Council will require a Transport Impact Assessment (TIA) to be submitted. Details of the TIA methodology/requirements are set out in Appendix 5.4.

5.95 All development proposals will be assessed for their contribution to traffic generation and their impact on congestion, particularly on bus routes and on the primary road network, and against the present and potential availability of public transport, and its capacity to meet increased demand.

Chapter 5 189 London Borough of Hammersmith and Fulham: UDP Alterations

Where developments include land uses that are major generators of travel and transport demand, the council will require a Transport Impact Assessment (TIA) to be submitted. Details of the TIA methodology/requirements are set out in Appendix 5.4.

The identification in the Plan of areas for development or redevelopment carries no guarantee that particular proposals submitted for planning permission will be acceptable on transportation grounds, either to the Council or to the Department, for Transport (DfT) of Transport (DoT). A detailed view on the transportation implications of individual applications can only be formed at the time when the application is submitted, having regard to the available capacity on the relevant road and public transport networks and of any proposals (and the status of such proposals) for expanding that capacity. In the case of trunk roads, proposals for expanding capacity are those actually included in the DoT's national or regional roads programme.

5.95a For certain developments the Council will require a Transport Impact Assessment to be submitted. This will contain information on a range of transportation matters and will assist the Council in determining what quantum of development is acceptable in transportation terms and how access can be gained as far as possible by means other than the private car.

A TIA will normally be required when a development generates: (a) more than 750 people per day, or (b) more than 300 vehicles per day, or (c) more than 100 person trips during the peak hours, or (d) more than 100 vehicle movements in any single hour, or (e) more than 15 heavy goods vehicles (over 7.5 tonnes) per day, or (f) any goods vehicle movements between midnight and 6 am

The table below sets out the likely level of floor space, which could result in one or more of the above criteria being met. For mixed-use developments, if the cumulative total number of trips exceeds any of the criteria, a TIA will be required.

Land Use Threshold Criteria A1: Foodstore 1000m2 GFA A B C D (500m2 NSA) DIY Store 2000m2 GFA B D E (1000m2 NSA) A3: Fast Food 50 seats A Restaurants 200 seats A C B1/A2 Office 3000m2 GFA C (1500m2 NSA) B2-7: Industry 2500m2 GFA E (1250m2 NSA) B8: Storage and 2500m2 GFA E Distribution (1250m2 NSA) C1: Hotel 200 bedrooms A 100 bedrooms A C D where other facilities (eg conference rooms etc) are provided C2: Hospitals 250 beds A B C3: Dwellings 200 units B D2:Cinema/theatre/ >250 seat capacity A Chapterbingo 5 190 Sports Centre >2000m2 GFA or A 1500 members London Borough of Hammersmith and Fulham: UDP Alterations

These are indicative thresholds to assist in the recognition of the proposals that may be expected to have significant transport implications.

The council will encourage developer support for public transport services and infrastructure and associated facilities, through Section 106 agreements, where development can only take place, with improvements to these services - refer to Policy TN21 Public Transport – Improvements in Connection with Development.

TN14 PARKING CONTROL

1994 Policy TN14 deleted

TN15 CAR PARKING STANDARDS VEHICLE PARKING STANDARDS

1994 Policy TN15 replaced by altered text shown below

The council will require any proposed development (new build or change of use) to conform to its approved car parking standards as a condition of granting planning permission. The council’s approved standards are set out in Chapter 11, standards S17-19.

1994 paras 5.99-5.101 replaced by altered text shown

The council will develop, monitor and periodically review its policies for parking control so as, firstly, to make adequate provision for the essential needs both of the borough's residents and of the local economy and, secondly, to discourage the increasing use of cars, particularly for journeys to areas of parking stress. In particular, the council will: i) produce, and annually review in conjunction with the preparation of its annual Local Implementation Plan (LIP) submission, a Parking Plan for the borough which sets out how it is intended to manage the supply and demand for parking across all types of provision; ii) progressively extend on-street parking control to all parts of the borough suffering from parking stress, subject to public consultation on the detailed proposals in each instance; iii) give priority, in the allocation of on-street parking provision (including parking for motor-cycles), to residents (particularly to persons with a disability) with additional provision for local industrial, business and shopping needs, where appropriate;

Chapter 5 191 London Borough of Hammersmith and Fulham: UDP Alterations iv) seek to reduce the demand for on-street parking by excluding specific developments (and their future occupiers and tenants) from applying/obtaining CPZ permits (also refer to S8.2 and S18.1) v) use all available powers to control the provision, and to regulate the use, of publicly available off-street car parks so as to complement its road traffic restraint policies; vi) develop, monitor and review a charging system for publicly available car parking spaces (both on- and off-street), which will both discourage car commuting and take account of car parking availability; vii) strictly control the quantity of car-parking provision in any development; and viii) give the highest priority to the enforcement of parking/ waiting regulations for which the Council has the necessary authority, especially on bus routes, ix) encourage the development of community car sharing/pooling schemes.

Parking stress occurs when the demand for parking space exceeds the amount of space which can be made available for parking in a safe and environmentally-acceptable manner.

The importance of parking control is three-fold. Firstly, when satisfactorily enforced, it is an effective means of sharing out a limited availability of parking space. Secondly, it is a valuable means of helping to implement an element of traffic restraint policy, since the availability of a parking space at the end of a car journey is an essential requirement if such a journey is to be made. Thirdly, it acts as a traffic management mechanism to prevent obstructive parking.

Proposals, designed to give effect to the Council's policies for parking control, will be regularly monitored to determine the extent to which they are successful in removing parking stress and in contributing to policies for restraining car use. Monitoring techniques will include surveys of kerbside use for parking (including duration of stay) and, as appropriate, interviews with vehicle occupants to determine the purpose for which parking has occurred.

TN15A FORECOURT AND OFF-STREET PARKING

In determining planning applications for parking in forecourts and front gardens together with associated footway crossovers, the Council will resist such provision: i) where the road to which access is required has a night-time on-street parking stress of 90% or more; ii) where the provision of a footway crossover could jeopardise the safety of pedestrians and cyclists (see policy TN4 and TN5); iii) where such parking would be out of character with the streetscape - refer to policy EN8e.

5.101a The creation of forecourt parking can result in the loss of on-street parking. This increases the potential for on-street parking stress which can result in double parking

Chapter 5 192 London Borough of Hammersmith and Fulham: UDP Alterations and obstruction of the highway. This has a serious consequential effect on the health and safety of local residents, both directly and indirectly through the obstruction of emergency/social service vehicles. The maintenance of a safe and attractive environment for pedestrians and cyclists is also of primary importance and vehicular access to properties via footway crossovers conflicts with these aims.

5.101b Consent for permanent crossovers and new vehicle access is needed under highways legislation. In considering a request for crossovers under highway powers, the Council will likewise give particular attention to safety requirements.

TN17 PUBLIC TRANSPORT - OVERALL POLICY

The Council will seek to secure the adequate and appropriate provision of frequent, accessible, safe, reliable, regular and sustainable public transport services, having and have regard to each of the following factors: i) personal accessibility to and between the overall network of public transport services, particularly for:. The Council will particularly seek the integration of the needs of mobility impaired passengers in public transport improvements and better publicity of this provision; and

- people whose personal circumstances deny them ready accessibility to existing services, and

- areas of the Borough which have a relatively poor level of public transport service provision; ii) quality of service provision and operation, particularly as regards reliability, safety, personal security, accessibility, comfort and convenience; and iii) level of service provision and operation throughout the day and night, but particularly in the early morning and late evening.

The Council as part of its wider objectives to reduce road traffic whilst ensuring adequate accessibility will seek the maximum integration of public transport . In order to offer a realistic alternative to the convenience of the car a “seamless” public transport network is the ultimate objective.

The Council will seek:-

1) more innovation in ticketing

2) better physical interchange at stations and between bus services .

3) improvements in the frequency and times of operation of services, and/or the direct links they offer, to be provided in liaison with the GLA / Transport for London;

4) improved passenger information such as the real-time information conveyed by the “Countdown” system.

Chapter 5 193 London Borough of Hammersmith and Fulham: UDP Alterations

5) the Council will encourage local employers to make any supplied comprehensive public transport information available in green commuter plans (also see policy TN11A).

5.104 The Council recognises that quality of personal lifestyle is significantly dependent upon the extent to which individuals are able to gain access to facilities and services and, while such access may be secured without the need for travel in some instances, the need for travel will arise in the majority of cases.

5.105 If the quality of lifestyle of those individuals who, because of their personal circumstances (including age, disability, caring responsibilities, cultural background, income level, etc), do not have access to personal transport (such as cars, bicycles, motor-cycles, etc.), is not to suffer, public transport must be adequately available to meet their travel needs at the times they wish to travel and at a level and quality of service which does not place them at too great a relative disadvantage to those with access to personal transport.

5.106 All modes of public transport services (including taxis) are significantly more efficient movers of people than are private cars - both in terms of their use of highway capacity and of their impact on the local environment. Further reasons for seeking the improvement of public transport, therefore, are both to encourage travellers to switch from private car to public transport and also to ensure that, as the use of private cars is progressively restrained in the future, public transport services are able to accommodate the additional passenger demand. The realisation of these objectives will be significantly dependent upon the extent to which separate public transport services are able to function as a single comprehensive, integrated network of services.

5.106a To encourage the use of public transport, it is also important to ensure that there are good facilities to make it easy to change between services or from one type of transport to another. As outlined in the Government White Paper on the Future of Transport, other innovations such as : improved booking and ticketing facilities along with improved passenger information will be needed to produce a more “seamless “ journey by public transport.

TN19 PUBLIC TRANSPORT - QUALITY OF ACCESS TO SERVICES

1994 Policy TN19 deleted

TN20 PUBLIC TRANSPORT - PROVISION AND OPERATION OF SERVICES

1994 Policy TN20 replaced by altered text shown below

TN22 PUBLIC TRANSPORT - BUS SERVICES

1994 Policy TN22 replaced by altered text shown below

Chapter 5 194 London Borough of Hammersmith and Fulham: UDP Alterations

The Council supports the introduction of more accessible, frequent, reliable, regular, comfortable, convenient and cleaner bus services. In particular, the Council will:

- oppose any developments which worsen conditions for the buses, particularly on the LBPN.

- encourage developer support for bus services, and infrastructure and associated facilities, through section 106 agreements, where development can only take place, with improvements to these services.

- explore further measures to improve operating conditions for buses as opportunities arise with many new possibilities for road space reallocation in the future.

- give a high priority to enforcing traffic regulations which help buses and look to new technology such as CCTV cameras to aid compliance.

- seek to ensure with appropriate assistance from the GLA/TfL that full access is available for wheelchair users from the kerb at the bus stop to the increasing number of accessible buses.

- seek continuing improvements in frequency and penetration into less well served areas subject to public support.

The Council has played a significant role in progressing bus priority measures such as bus lanes and bus stop clearways to improve bus reliability, and will continue to implement schemes on a co-ordinated basis and review them as part of the London Bus Priority Network.

5.112 The greatest single problem with bus services in congested inner urban traffic conditions is their unreliability and this characteristic acts as a very considerable disincentive to potential passengers. On the other hand, buses are pre-eminently the providers of short distance urban transport for journeys in excess of walking distance for people without access to a car - in particular, young people, older people, women and ambulant people with a disability. Moreover, bus services represent the only opportunity in the short term of significantly increasing the person-carrying capacity, and the accessibility, of transport in inner London. The unreliability problems are being addressed across London by the implementation, on a co-ordinated basis, of bus priority measures through the London Bus Priority Network. Progress is also being made in increasing the accessibility of the services through the introduction of low-floor buses and associated kerb works to allow passengers easier access from the pavement. 5.113 The operational characteristics of buses, particularly their route flexibility and their ability to penetrate into local areas, mean that they have a unique role to play within the overall urban public transport network. Bus services are a complement to rail services - not a competitor. The quality of a public transport service is measured largely by the ease with which it gives a traveller access to the overall network of public transport services and by the quality of their integration, rather than by the quality of the initial service in competition with others.

5.114 Any threat to the maintenance (or improvement) of public transport accessibility levels would have the most serious consequences for the Council's integrated land-

Chapter 5 195 London Borough of Hammersmith and Fulham: UDP Alterations use/transportation planning strategy. An example of such a threat would be the deregulation of bus services in London, together with the loss of integrated ticketing systems and of integrated passenger information services, which would be the probable consequences of such deregulation.

5.115 It is for the above reasons, and in support of its commitment to the achievement and maintenance of a comprehensive and integrated network of public transport services, that the Council has adopted this policy. A map indicating the current frequency of bus services within the Borough is included as Fig. 5.3.

TN24 PUBLIC TRANSPORT - COACHES AND TAXIS

The Council will require, as a condition of granting planning permission, that development proposals for public buildings, hotels, etc. make full provision for access by coaches and taxis which should not impinge on existing bus servicing arrangements or road safety in the vicinity. In respect of existing premises, the Council will seek to ensure that adequate provision is made for such access. Also refer to S18.1 Car Parking Standards

The Council will normally permit coaches and taxis to take advantage of bus priority measures in the Borough unless there are circumstances in which bus priority would be adversely disadvantaged. In addition the Council will seek to identify suitable locations for stands for parking.

The Council will press for improved accessibility of taxis and coaches for wheelchair users.

The Council will encourage and support experiments in the use of taxis to improve the mobility of people with a disability.

5.119 The Council recognises that coaches and taxis are efficient users of road space and, as such, their use will be encouraged and supported where appropriate and will not be restrained as part of the Council's overall policy of traffic restraint/reduction.

TN25 PUBLIC TRANSPORT - INTERMEDIATE TRANSPORT PROVISION MODES

1994 Policy TN25 replaced by altered text shown below

The Council will, as part of its wider policies to reduce general traffic and improve public transport corridors, support studies of potential viability, design and implementation of “Intermediate Modes” of public transport such as articulated buses, guided buses or trams. The Council will work with GLA/Transport for London and the Boroughs of Ealing and Hillingdon for a scheme leading to an Intermediate Modes on Uxbridge Road (A4020). Such proposals would be the subject of extensive consultation.

The Council recognises that the full potential for Intermediate Modes can only be achieved if road space is re-allocated from non-essential traffic.

Chapter 5 196 London Borough of Hammersmith and Fulham: UDP Alterations

5.120 There is a "gap" in the provision of publicly-available transport services between the provision of relatively high frequency scheduled ("fixed-route/fixed stops") bus services and the fully "demand-responsive" taxi, in terms both of passenger capability and of area served. Many people (for example: elderly people, women travelling alone at night and people with a disability) find the walk to, and the uncertain wait at, the nearest bus-stop too daunting and insecure. There are also areas of the Borough where the passenger demand is too low to justify a convenient/accessible scheduled bus service, which can make the prospect of travel too daunting even for some able-bodied people (for example: women with young children and people carrying shopping/luggage). The alternative of using a taxi is also not available to many people, for reasons of cost, difficulty in summoning a taxi (i.e. no phone) or because of taxi- drivers' reluctance to travel to certain destinations. Rail services are generally the means of high capacity public transport travel along a corridor. Building new lines is expensive, takes a long time and may cause significant disruption. Where there has been success in establishing strong passenger demand along bus corridors through end to end bus priority and other associated measures, a case can be made for investigating “Intermediate Modes” :- such as articulated buses or trams. These can provide the benefits of increased capacity at greatly reduced cost, time and disruption that a “heavy” rail system might cause.

5.121 Some well-established initiatives already operate in the Borough (including Hammersmith & Fulham Dial-a-Ride, Taxi-Card, Age Concern Transport, Women's Safe Transport, Hammersmith & Fulham Community Transport Project, etc). The new (scheduled, fixed-route) Hoppa bus services (C3 and C4), which have been introduced with Council support, also help to make themselves more accessible (even though they remain scheduled, fixed-route services) by adopting the "hail-and-ride" principle when operating away from established bus routes. Even so, this existing level of intermediate transport provision still leaves a very substantial degree of unmet transport need. Because of the particular success in building up a strong bus demand along the Uxbridge Road corridor, London Transport has been working with this Council and the Boroughs of Ealing and Hillingdon to investigate the opportunity of implementing an intermediate mode scheme.

TN23 PUBLIC TRANSPORT– RAIL SERVICES SAFEGUARDING LAND FOR FUTURE TRANSPORT SCHEMES

1994 Policy TN23 replaced by altered text shown below

Land will be safeguarded for the following public transport schemes, as shown on the proposals map:

1. In accordance with safeguarding directions issued by the former department of transport:

• The Chelsea-Hackney line project (crossrail 2) • The East-west Cross rail project (crossrail 1) • The Channel Tunnel rail link siding for Eurostar trains

2. Other local schemes:

• A station at White City on the West London line • A station at Sands End/Imperial Wharf on the West London line

Chapter 5 197 London Borough of Hammersmith and Fulham: UDP Alterations

• An additional station on the LUL Hammersmith and City line at Wood Lane • An improved pedestrian footpath from Hythe Road to Willesden Junction

3. In addition, the council will encourage and support the following :

• Provision of an additional station at Ducane road on the Central line, to serve the Hammersmith hospital sites other developments • Early implementation of Crossrail 1 (east west) and the provision of an interchange station in the Willesden Junction/Old Oak Common/Mitre Bridge area, serving the • West London line, other surface rail and underground services and the Park Royal eastern gateway • Early implementation of Crossrail 2 (Chelsea Hackney line) with at station in the sands end area, to serve existing and proposed developments there and interchange with the West London line. • The council will seek the recognition of these aspirations in development applications related to these areas.

1994 paras 5.116-5.118 replaced by altered text shown

5.116 The council will encourage and support:

- the provision and/or expansion of local passenger rail services, particularly where this will reduce the demand for travel by road;

- improvements in access for all and to the accessibility for all of, stations serving the borough, and

- an accelerated programme for the modernisation and improvement of stations in the borough.

The council will also press for the enhancement of the frequency of local services on the West London line, with its inclusion in the Mayor of London’s proposed Orbirail scheme

The council will In particular encourage and support the provision of the facilities described in policy TN23 above, not only by safeguarding land for them but by assisting in securing funding, and development of and participation in partnerships to secure their implementation, except in the case of the Channel Tunnel Rail Link siding. In this case, the council will press for a CTRL depot to be established at Stratford to release capacity on the West London Line for enhanced local services. In this case, the additional siding would not be required.

TN26 PUBLIC TRANSPORT - WATER

The Council will encourage and support the use of the River Thames and Grand Union Canal for public passenger transport services wherever possible, subject to ensuring that nature reserves and other nature conservation areas are protected from the effects of pollution and the wash from boats (see policies EN27, EN31 and EN32).

Chapter 5 198 London Borough of Hammersmith and Fulham: UDP Alterations

Development in connection with the use of the river Thames and Grand Union canal for the operation of public transport services will be welcomed, particularly between central London, Chelsea Harbour and Hammersmith. The inclusion in appropriate development proposals of facilities that improve access for pedestrians and cyclists to the Grand Union canal will also be welcomed.

5.122 Both the River Thames and the Grand Union Canal are significantly under- utilised for public transport. There is no technical reason why such use should not occur, subject to ensuring that the environmental impacts of pollution and wash from boats are minimised, possibly through the development of new technology. It will also be important to co-ordinate effective land interchange facilities at any jetties (see also TN31, TN32, TN33 and TN34).

TN18 PUBLIC TRANSPORT - ACCESSIBILITY OF SERVICES

1994 Policy TN18 deleted

TN21 PUBLIC TRANSPORT - FINANCIAL SUPPORT IMPROVEMENT IN CONNECTION WITH DEVELOPMENT

The Council will use its powers, under S.28 of the London Regional Transport Act 1984, "to enter into and carry out agreements with London Regional Transport with respect to the provision or continued provision by London Regional Transport, and the financing, on such terms as may be agreed between the parties, of public passenger transport services and facilities which would not be available apart from such an agreement".

In appropriate circumstances, following consultation with the public transport operators, the Council will use its powers under S.106 of the Town and Country Planning Act 1990, to enter into agreements with persons interested in developing land within the Borough for the purpose of securing improvements (or a financial contribution towards the securing of such improvements) in the accessibility of that land to public transport (or to appropriate specialist transport provision), insofar as these improvements are related to the nature and scale of the proposed development, in accordance with DoE Circular 1/97.

Development will not be permitted if it would give rise to, or add to, overcrowding on public transport services, unless measures are included to improve such services to a level sufficient to service the development without increasing overcrowding, and so that they are sufficiently attractive to provide an acceptable alternative to car use.

5.110 Whilst the Council firmly believes that the primary responsibility for financing the provision of public transport services lies with the operators, it is recognised that occasions will arise when operators will be unable/unwilling to provide specific services sought by the Council and/or developers. In such circumstances the Council may be able to use its powers to provide (or to facilitate the provision of) finance by a variety of means. Examples of such means are set out in Table 5.1. Where appropriate the council will use its powers under s.177 of the Greater London Authority Act 1999 "to enter into and carry out agreements with: (a) Transport for London (b) the Franchising

Chapter 5 199 London Borough of Hammersmith and Fulham: UDP Alterations

Director or (c) any person who is the holder of a passenger license, a network license or a station license, with respect to the provision or retention, and financing, of public passenger services and facilities which would not be available apart from such an agreement. In appropriate circumstances, following consultation with the public transport operators, the council will use its powers under S.106 of the Town and Country Planning Act 1990, to enter into agreements with persons interested in developing land within the borough for the purpose of securing sustainable improvements (or a financial contribution towards the securing of such improvements) in the accessibility of that land to public transport (or to appropriate specialist transport provision.

5.111 The nature of the public transport improvements, for which the Council would seek contributions from developers, will necessarily depend on the characteristics and location of the development under consideration, but might include:

- the construction of new stations, - the improvement of existing stations, - the provision, or improvement, of public transport interchange arrangements, - the provision of a new, or improved, train or bus service and/or improved service frequencies, funded either by means of interest earned from a deposited capital sum or by underwriting an experimental introduction of such services/enhanced frequencies, following negotiations with the appropriate service provider(s).

TN27 AIR TRANSPORT - HELICOPTERS

1994 Policy TN27 deleted

TN28 FREIGHT AND SERVICING - ACCESS TO PREMISES

The Council will ensure that all sites in the Borough, which are developed for commercial and/or industrial uses, are provided with adequate access for freight movements and for servicing, as part (or in advance) of such development and in a manner which is not detrimental to the local environment.

TN29 FREIGHT AND SERVICING - USE OF ROADS

The Council will: i) encourage the transfer of freight traffic from road to rail, water or pipe-line, wherever practicable; ii) encourage operators to take, and support them in taking, all reasonable measures to reduce the number of road freight movements by means of improved methods of freight handling; iii)ii) encourage and support the confinement of heavy lorries to suitable routes and their exclusion from unsuitable roads, other than for final access to premises, and, in particular, will:

- support the London Boroughs' Transport Scheme (LBTS) night-time and weekend ban on lorries above 16.5 tonnes (GVW) and will support all

Chapter 5 200 London Borough of Hammersmith and Fulham: UDP Alterations

appropriate measures to ensure the effective operation and enforcement of the LBTS ban;

- promote local area bans on heavy lorries, in appropriate circumstances, (areas currently subject to a local ban are shown in Fig. 5.5); and

- implement appropriate traffic management measures to meet specific local needs; iv)iii) operate a ban on overnight, on-street lorry (and coach) parking within the Borough and will actively encourage its enforcement by the Metropolitan Police; v)iv) support the development of a network of strategically located, overnight lorry (and coach) parks throughout London, together with the provision nearby of suitable overnight facilities for drivers.

5.125 The well-being of the local economy is dependent on the operational efficiency of local firms. This efficiency, in turn, is directly dependent on the ease with which goods can be delivered and despatched and with which premises can be serviced. Conversely, the movement of goods and servicing vehicles can have a seriously adverse impact on the environment enjoyed by local people. The Council's policies seek to reconcile these potentially conflicting objectives.

5.126 In an inner London borough, where land is at a premium, all possible measures should be taken to ensure the most efficient use of available roadspace. Also the environmental impact of road traffic in general, and lorries in particular, means that the interests of Borough residents are best served by policies which seek to control and regulate the movement of heavy lorries and by those which, wherever possible, seek to transfer freight from road transport to rail and/or water transport (or even to pipeline, where appropriate).

TN30 FREIGHT AND SERVICING - USE OF RAIL

The Council will encourage the transfer of freight traffic from road to rail by: i) supporting the regional development and implementation of a strategic regional policy for aggregate, refuse and steel depots; ii) encouraging industry to develop private sidings, utilising S.56 grants (i.e. grants identified in S.56 of the Transport Act, 1968), wherever feasible; and iii) supporting the development of a rail depot policy jointly by British Rail train operating companies, Railtrack and planning authorities; but will, in any event, have regard to the economic consequences and environmental suitability of any detailed proposals which may be put forward to give effect to these policies.

The Council will support and encourage the development of a round London rail bypass for freight traffic which is not destined for the Capital. also support the development of a new Channel Tunnel rail link (with a new east London Thames crossing) between the Tunnel entrance and new passenger and freight terminals

Chapter 5 201 London Borough of Hammersmith and Fulham: UDP Alterations at Stratford in east London, as a means of diverting a substantial proportion of Channel Tunnel rail freight traffic away from the West London Line.

5.127 The arguments in favour of transferring freight traffic from road to rail transport are largely environmental but, in a Borough which is served by more than 5 miles of railway corridor, considerations of economy and efficiency must also be weighed.

5.128 At the present time, British Rail's proposals for the handling of Channel Tunnel freight involves bringing all freight destined for London and beyond to an international freight terminal at Wembley and a "Freightliner" terminal at Willesden, via the West London Line. Not only will does this create serious environmental disruption (noise, vibration, etc) for local residents living adjacent to the Line, particularly as the majority of freight will be is moved at night, but, it will also seriously reduces the number of "train- paths" available to permit the maintenance, and enhancement, of the "restored" local passenger services on the Line. The only way of achieving these benefits is to secure an alternative strategic route for some of the freight traffic (see also paragraph. 5.35 5.34 (ii) above).

TN31 FREIGHT AND SERVICING - USE OF WATER

The Council will encourage the transfer, where appropriate, of freight traffic from road to water transport, and will take the initiative in promoting such transfer, wherever possible, by encouraging the development of wharves or piers to facilitate water transport. The Council will review all sites adjacent to the River Thames and the Grand Union Canal (Paddington Branch), which become available for development, so as to assess their potential for freight operators - particularly as small-sized aggregate terminals.

The Council will attach an informative to all planning consents in respect of waterside sites requesting contractors to use water-borne deliveries of plant and materials, wherever possible, during the construction process.

The Council will encourage, and support, the development of a sub-regional strategy for the water-borne handling of freight in west London.

Proposals for the transfer of freight traffic from road to water transport, and of the provision of wharves or piers to facilitate such transport, will be welcomed where appropriate where there is not an overriding need to use the site for other purposes and where the transfer facility would not generate unacceptable levels of road traffic.

The sites identified on the proposals map for wharf related uses will be safeguarded against development that could preclude their future use for the transhipment of freight, including waste and aggregates, and for related activities.

5.129 The arguments in favour of transferring freight traffic from road to water transport are again largely environmental but, in a borough which has more than three miles of Thames frontage and is traversed by the Grand Union Canal, considerations of economy and efficiency must also be weighed, as well as the problems of road access to any proposed terminal.

Chapter 5 202 London Borough of Hammersmith and Fulham: UDP Alterations

The ability of the council to pursue any significant local policy of transferring freight to water-borne transport depends largely on the further development of suitable systems and of appropriate terminals in west London.

The council will explore with the Port of London authority, British Waterways and other partners opportunities the use of the River Thames and the Grand Union Canal for waterborne freight and will encourage, and support, the development of a sub-regional strategy for the water-borne handling of freight in west London.

The council will attach an informative to all planning consents in respect of waterside sites requesting contractors to use water-borne deliveries of plant and materials, wherever possible, during the construction process.

The Secretary of State has safeguarded three Riverside Wharf sites in the Borough specifically for the trans-shipment of freight, including waste and aggregates, and related freight activities. In accordance with RPG3b/9b ‘Strategic Planning Guidance for the River Thames’ these sites should be retained and safeguarded against development that could preclude their future use for trans-shipment purposes. The council has considered these sites and agree that they warrant protection against permanent development which could jeopardise their future use for the loading and unloading of waterbourne freight Before granting planning permission following an application on one of these sites the Council is required to consult the Secretary of State for the Environment, Transport and the Regions for a decision as to whether the application should be called-in for determination.

TN33 TRANSPORT SAFETY - HAZARDOUS WASTES

1994 Policy TN33 deleted

TN34 TRANSPORT STATISTICS AND TRENDS

The Council will monitor, review and analyse the performance of the Borough's transport networks, and those developments likely to affect that performance, and will publish, as part of its Local Implementation Plan, an annual summary of the most relevant statistics and trends.

5.133 It is only by the acquisition and publication of such information that the Council, and people living and working within the Borough, will be enabled to participate fully and positively in the processes of consultation and decision-making with respect to transportation planning matters.

Chapter 5 203 London Borough of Hammersmith and Fulham: UDP Alterations

APPENDICES

APPENDIX 5.1: CLASSIFICATION HIERARCHY OF BOROUGH ROADS

A. Primary Roads Strategic Routes:

A4: Great West Road (including the slip roads to Hammersmith Bridge Road)/Hammersmith Flyover/Talgarth Road (east of Butterwick)/West Cromwell Road. A40/A40(M): Westway, including slip roads to Wood Lane and M41 Roundabout M41: West Cross Route/A40 Roundabout.

B. Secondary Roads London Distributor Roads:

Designated Secondary Roads

A217: Wandsworth Bridge Road/Wandsworth Bridge A219: Scrubs Lane/Wood Lane (north of Westway) A219: Shepherd's Bush Road A219: Butterwick/Queen Caroline Street (north of Talgarth Road)/Talgarth Road (west of Butterwick)/Fulham Palace Road/Fulham High Street/Putney Bridge Approach/Putney Bridge A304: Fulham Road/Fulham Broadway/Fulham Road A306: Hammersmith Bridge/Hammersmith Bridge Road A308: New King's Road/King's Road A315: Hammersmith Broadway/Hammersmith Road (west of Butterwick) A40: Wood Lane (south of Westway)/Uxbridge Road (east of Wood Lane)/Shepherd's Bush Green A402: Goldhawk Road A4020: Uxbridge Road (west of Wood Lane).

C. Other Secondary Roads Borough Distributor Roads

A315: King Street/Studland Street (south of Glenthorne Road) / Glenthorne Road (east of Studland Street and west of Beadon Road)/Beadon Road A315: Hammersmith Road (east of Butterwick) A3218: Lillie Road A3219: Munster Road (north of Dawes Road)/Dawes Road (west of North End Road)

B317: North End Road (south of Dawes Road) B408: Askew Road : Old Oak Common Lane/Old Oak Road : Hopgood Street/Macfarlane Road (east of Hopgood Street).

C. Local Distributor Roads:

(i) First tier:

B317: North End Road (north of Dawes Road) B318: Harwood Road B408: Paddenswick Road/Dalling Road (south of Paddenswick Road and north of Glenthorne Road)/Glenthorne Road (west of Studland Street) B409: Stamford Brook Road

Chapter 5 204 London Borough of Hammersmith and Fulham: UDP Alterations

B412: North Pole Road : Bloemfontein Road : Du Cane Road : Glenthorne Road (east of Beadon Road) : Hammersmith Grove (south of Glenthorne Road) : Bramley Road (north of St. Ann's Road)/ St. Ann's Road.

D. Local Access Roads

(ii) Second Tier Retaining an essential through traffic function in the short to medium term:

B408: Dalling Road (south of Glenthorne Road) : Coningham Road : Emlyn Road/Larden Road : Hammersmith Grove (north of Glenthorne Road) : Munster Road (south of Dawes Road) : Parson's Green Lane/Parson's Green (west side) : Townmead Road (south of Imperial Road)/ Imperial Road/Harwood Terrace/Bagleys Lane (north of Harwood Terrace) and Waterford Road (north of Harwood Terrace and south of King's Road). Brook Green

D. Local Access Roads

(ii) Other:

All roads not included in classifications A, B or C above. (Note: Brook Green, although classified as a local access road, will continue to have an essential through traffic function in the short-to-medium term).

Chapter 5 205 London Borough of Hammersmith and Fulham: UDP Alterations

APPENDIX 5.2: SCHEDULE OF ROAD SCHEMES

Map Ref. Scheme Progress/Programme T1 Western Circus (DOT) The public inquiry has been concluded and the scheme is included in the Department of Transport’s current implementation programme. T2 Lyons Walk The highway has been closed to motor vehicles. A pedestrianisation scheme will be implemented shortly. T3 Hammersmith Bridge The scheme is approved Road - diversion for public consultation. T4 New Kings Road - footway Part of the scheme has widening been completed as part of the neighbouring site redevelopment. The remainder of the scheme is dependent on neighbouring sites being redeveloped or the Council purchasing a strip of land. T5 Sands End Riverside Some sections of the road Local Distributor Road are now completed. The remaining sections are dependent on planning applications/approvals releasing the land required for the road. It is anticipated that planning applications will shortly be submitted for the remaining sites . A timescale of 3-4 years is envisaged for completion of the scheme.

T7 Hammersmith Centre This is dependent on planning applications/approvals releasing private land. A timescale of 3-4 years is envisaged for completion of the scheme.

Chapter 5 206 London Borough of Hammersmith and Fulham: UDP Alterations

Chapter 5 207 London Borough of Hammersmith and Fulham: UDP Alterations

APPENDIX 5.3 PUBLIC TRANSPORT ACCESSIBILITY: THE DERIVATION OF ACCESSIBILITY INDICES AS A BASIS FOR IDENTIFYING PUBLIC TRANSPORT ACCESSIBILITY LEVELS

1.0 INTRODUCTION

1.1 People without access to a car, or another means of personal transport, are dependent on some form of publicly available transport for making journeys in excess of walking distance. For most people this will mean using scheduled public transport services.

1.2 The ease with which a person is able to gain access to these services (i.e. their accessibility), therefore, is a useful measure for assessing a generally available level of accessibility.

1.3 A full measure of a person's accessibility to any desired destination by public transport is dependent on three elements:

(i) the ease of access from the origin of the journey to the nearest convenient location(s) on the public transport network,

(ii) the ease of access to the final destination of the journey from the nearest convenient location(s) on the public transport network, and

(iii) the ease of the intervening journey by scheduled public transport services.

The Council's objective in assessing public transport accessibility, however, is primarily to enable comparisons to be made between:

- the relative accessibility which exists at different locations within the Borough, and

- the relative effects on such accessibility of introducing different schedules or levels of service.

Such relative comparisons can be made, with a high degree of accuracy, on the basis of assessing only the first element set out above, namely - the accessibility of the "origin" location to the public transport network.

1.4 The Council's definition of public transport accessibility, therefore, is based both on the access distance to public transport services and on the quality of service available (i.e. the choice of alternative services and their frequency and reliability) at the access location(s).

2.0 DERIVATION OF ACCESSIBILITY INDICES 2.1 Accessibility to/by public transport is influenced by the aggregate availability/quality of public transport services within a reasonable walking distance.

2.2 Any formula employed to obtain a relative measure of accessibility also has to be able to take proper account of the specific characteristics of local transport conditions. In the case of inner London, these characteristics include the relative density of the public transport networks and the intensity of road traffic congestion on the principal bus routes. Where, for example, a substantial number of routes lie within "walking distance",

Chapter 5 208 London Borough of Hammersmith and Fulham: UDP Alterations an unrealistically high value of accessibility may be obtained. Road traffic congestion, on the other hand, contributes to an irregular operational performance of bus services and it has been shown that in such circumstances, in inner/central London, the average waiting time for passengers can equate to approximately the service headway (as against half the headway where a service operates in accordance with its scheduled regularity).

2.3 Accordingly, a formula for deriving an accessibility index for any location, which takes account of the factors identified in the previous paragraph, has been developed empirically, as follows:

2.3.1 The "access time" from the origin location (or "doorstep") to each route is calculated on the basis of aggregating the walking time (at 3 mph or 4.8 km./hr.) to the nearest bus stop/rail station on the route and the anticipated average waiting time upon arrival at the boarding point, such that:

access time = walking time + average waiting time = walking time + k ( 60 ) mins 2 (scheduled frequency (services/hour))

= walking time + k + scheduled wait time

[where k is a "reliability" factor relating to the reliability of the service, which may be derived from observed survey data for each service at any time of day - in the absence of such data, in inner London, at peak travel times the following approximations may be applied:

- for rail, k = 1 + 0.75 - for bus, k = + 2

2.3.2 The "equivalent doorstep frequency" (or EDF) may be calculated for each route, as follows:

EDF = 30 access time

2.3.3 The aggregate EDF (or the Accessibility Index) for each sample location may now be obtained by a summation of all the individual EDFs within a reasonable walking distance. (A reasonable walking distance has been assumed as 10 8 minutes (640 metres) walk to a bus-stop and 15 12 minutes (960 metres) walk to a rail station). A further refinement to the approach, however, is necessary to take account of locations served by a relatively dense network of public transport services, such as inner/central London, where several services travelling on parallel, but almost equally accessible, routes may well serve similar destinations. Such services do not provide a full choice to the potential traveller since the overall frequency of accessible services to a destination is unrealisable in practice (i.e. a real traveller must choose to walk to a particular bus stop or rail station). Another feature of a dense network is the inevitable dependence of travellers on interchanging between routes to reach a desired destination. Such interchange movements also add delays to a journey by public transport.

Chapter 5 209 London Borough of Hammersmith and Fulham: UDP Alterations

2.3.4 As a means of compensating for the above influences, the EDF of all but the most accessible route for both bus and train has been halved in arriving at the Accessibility Index for each location:

i.e.: Accessibility Index =

30 + 15 + 15 + …… + 15 + 30 + 15 + 15 + ….. + 15 X1 X2 X3 Xm Y1 Y2 Y3 Yn where X1 = access time to the most accessible bus route,

Xm= access time to any accessible bus route (i.e. within 10 8 minutes walk), m = number of accessible bus routes,

Y1 = access time to the most accessible BR/LT mainline/underground rail route;

Yn = access time to any accessible BR/LT mainline/underground rail route (i.e. within 15 12 minutes walk), n = number of accessible rail routes.

2.4 An Accessibility Index may now be derived for any location.

3.0 DETERMINATION OF ACCESSIBILITY ZONES

3.1 Having derived Accessibility Indices for a range of locations, the opportunity is available to plot an isochronal map of an area whereby points of equal accessibility are linked so as to enclose zones within which a common range of Accessibility Indices exists. These zones may then be defined in terms of Accessibility Levels (spanning a range of Accessibility Indices).

3.2 In Hammersmith & Fulham, these zones have been defined as follows:

Accessibility Level Range of Accessibility Indices 1 (Lowest) 0.00 - 5.00 2 5.01 - 10.00 3 10.01 - 15.00 4 15.01 - 20.00 5 20.01 - 25.00 6 (Highest) >25.00

APPENDIX 5.4 TRANSPORTATION IMPACT ASSESSMENTS

LPAC in its ‘Advice on Strategic Planning Guidance for London’ policy T6 states: Boroughs should more fully reflect transport’s contribution to sustainable development in the planning process by considering with developers, the transport aspects of development proposals via Transport Impact Statements and Assessments and encouraging employers to prepare Transport Plans for their employees, which seek to reduce dependency on the car.

Chapter 5 210 London Borough of Hammersmith and Fulham: UDP Alterations

The Strategic Guidance for London Planning Authorities (RPG3) provides specific guidance on this issue stating “In seeking out opportunities for development Boroughs should...carry out an assessment of the transport impact of development proposals, to determine how access to a particular developments can be gained as far as possible by means other than the private car, requiring developers to undertake assessments in more detail when making applications, according to the size of the development.”

A transport impact study (TIA) should provide detailed information on a range of transport conditions before and after a development has been built. The information contained within the TIA will be used to assess whether the development is acceptable in transportation terms.

Land Use Threshold Criteria A1: Foodstore 1000 m² GFA A B C D (500 m² NSA) DIY store 2000 m² GFA B D E (1000 m² NSA) A3: Fast Food 50 seats A Restaurants 200 seats A C B1/A2 Office 3000 m² GFA C (1500 m² NSA) B2-7: Industry 2500 m² GFA E (1250 m² NSA) B8: Storage and Distribution 2500 m² GFA E (1250 m² NSA) C1: Hotel 200 bedrooms A 100 bedrooms where A C D other facilities (e.g. conference rooms, etc) are provided C2: Hospitals 250 beds A B C3: Dwellings 200 units B D2: Cinema/theatre/bingo >250 seat capacity A Sports centre >2000 m² GFA or A 1500 members

REQUIREMENTS OF THE TRANSPORT IMPACT ASSESSMENT

The level of detail required within the Transport Impact Assessment (TIA) will be dependent upon the size/type of scheme. Applicants are encouraged to discuss with the local authority the proposed approach at a pre-application stage.

SCOPING STUDY

The applicant will be required to produce a scoping study which describes the proposed approach, discusses the issues likely to influence the proposed development and identifies key measures which will help reduce dependency on the car.

MAIN STUDY

The standard methodology for the transport study is set out below:

Chapter 5 211 London Borough of Hammersmith and Fulham: UDP Alterations

1. EXISTING SITUATION

1.1 Produce an assessment of the existing situation indicating the relationship of the site to the surrounding road network, public transport, pedestrian and cycle networks. Provide information on traffic flows, accident records and parking conditions. In order to assess the potential for local jobs/visitors/customers information will also be required on local population density, socio-economic makeup and diversity of existing activity.

2. INITIAL TRIP RATES AND MODAL SPLIT

2.1 Assume floor space for development elements based on UDP policies and standards. Plans should be provided at a scale of no less than 1:1250. Careful consideration should be given to the type, mix and layout of the development to ensure that accessibility is maximised by means other than the private car.

2.2 Establish total person trips during peak and non-peak hours by applying recognised trip rates for each land use to the assumed floor area. Account should also be taken of all trips to and from other potential development sites, including vacant premises in the area.

2.3 Derive likely modal split under existing conditions for each land use paying careful consideration to the following points: * How specialised are the activities within the development likely to be (bearing in mind that more specialised activities serve larger catchment areas)? * What will the catchment area be for both employees and visitors/customers? * What proportion of employees/visitors/customers are likely to live within walking and cycling distance? * What proportion of employees/visitors/customers are likely to live within a single public transport trip? * How does the design of the development encourage travel by sustainable modes (walking, cycling and public transport)?

Based on examples of questions proposed by LPAC in their ‘Advice on a Strategy for Walking in London.’

2.4 Apply modal split percentages to each land use person trip total to establish peak and off-peak trips by each mode taking account of UDP parking standards and existing/proposed ‘on-street’ controls for the surrounding area.

3 PEOPLE WITH A DISABILITY

3.1 The local authority will require, as an essential condition of granting planning permission, that adequate provision is made for the needs of people with a disability. The transport study should identify measures to ensure that full provision is made for the transport needs of people with a disability including physical measures, access for community transport services and designation of car parking.

4. PUBLIC TRANSPORT

4.1 Establish the accessibility of the development to the public transport network (bus, rail and where appropriate river passenger service) using the PTALs methodology and where appropriate London Transport’s CAPITAL (Calculator for Public Transport Accessibility in London or similar) Determine a range of reserve capacities of the existing

Chapter 5 212 London Borough of Hammersmith and Fulham: UDP Alterations public transport network based on observed and published survey data and compare with predicted public transport trips for the local area. Establish and predict number of additional public transport trips in the peak and non-peak hours and per annum.

4.2 Consider options for public transport improvements in relation to the catchment area of the proposed development. Determine peak hour capacity and compare with potential public transport demand. Measure revised accessibility of the development to the public transport network using PTALs. Establish reserve capacity available and derive potential for modal shift. Demonstrate the measures which will be employed to achieve modal shift – for example quote from the experience at other sites where similar measures are already in operation. In particular the predicted modal shift to buses should be shown to be achievable in the context of the predicted bus journey times and journey-time variability. This should be cross referenced to any proposed bus priority measures.

4.3 Where appropriate accepted models such as Railplan should be utilised to demonstrate the predicted modal splits are based on realistic assumptions

4.4 Consult where necessary with the appropriate transport agencies 5. CYCLISTS AND PEDESTRIANS

5.1 Assess the capacity and safety of pedestrian and cycle facilities and consider the impact of the additional development flows. Careful consideration should be given to pedestrian and cyclist desire lines, accident blackspots, conflicts with other road uses and access to the public transport network. Access routes to bus stops and rail stations must be explicitly considered.

5.2 Determine the number and design of on-site cycle parking and propose measures to assist pedestrians and cyclists. Derive potential for modal shift.

6. HIGHWAYS

6.1 Determine capacity of existing road links and junctions using existing flows and find reserve capacities available utilising appropriate packages as necessary (such as OSCADY, PICADY, ARCADY, LINSIG & TRANSYT). Giving careful consideration to the objective of restraining traffic and allocating road space made available by restraint policies to ‘essential’ traffic (including buses, cyclists and pedestrians) determine assignment of peak and off peak vehicular trips to the road network. The assessment should include the commercial vehicles that will be required to service the development. Add development flows and repeat capacity tests.

7. ROAD SAFETY MEASURES

7.1 Propose local traffic safety and environmental improvements for the surrounding area (where appropriate) and test network setting out the assumptions made.

8. SAFETY AUDIT

8.1 Where a proposed development will impact on the local highway network in a manner which could have implications for safety, a safety audit and an agreed safety implementation plan will be required.

9. POLLUTION

Chapter 5 213 London Borough of Hammersmith and Fulham: UDP Alterations

9.1 At each stage of the traffic assignment modelling the impact of the generated traffic on air pollution and noise should be taken into account where practical.

10. REDUCING DEPENDENCY ON THE PRIVATE CAR

10.1 Deduct traffic transport trip shift from vehicular trip total to establish new vehicular trip level. Re-assign vehicular trips and re-test road network.

10.2 Repeat process with revised residential and commercial floor space area of development if necessary until a satisfactory balance is obtained.

11. MEASURES TO ENSURE SUSTAINABILITY

11.1 Propose measures to ensure envisaged modal split targets (assuming car parking is capped at UDP standards or below) are achieved. Measures could include funding (through a S.106 agreement) new public transport services/facilities, traffic calming, parking controls - both on-street and within development, measures for pedestrians and cyclists and incentives for non-car users. In addition, a Travel Plan will be required as a condition of planning permission.

12. CONCLUSIONS AND RECOMMENDATIONS

12.1 Summarise transport impacts. Outline the methodology used to achieve the overall objective of ensuring that as far as possible access to the development can be achieved by means other than the private car (in line with PPG13 aims) and with no increase in road traffic.

Chapter 5 214 London borough of Hammersmith and Fulham: UDP Alterations

CHAPTER 6: HOUSING

RESTATEMENT OF PART 1 POLICY G5: HOUSING 218

JUSTIFICATION FOR PART 1 HOUSING G5: 218

B. HOUSING ISSUES: ACCESS TO HOUSING THAT MEETS IDENTIFIED NEEDS IN TERMS OF TYPE, SIZE AND AFFORDABILITY 220

Access 220

Access to affordable housing 221

Access for particular groups in society 224

Quality of housing and the residential environment 227

Policy context for quality of housing and the residential environment 228 Shortage 229 Access 229 Quality of Housing and the Residential Environment 230

PART 2 HOUSING POLICIES 230 HO1 PREVENTION OF THE LOSS OF EXISTING RESIDENTIAL ACCOMMODATION 230 HO2 VACANT HOUSING 231 HO3 HOUSE CONVERSIONS 231 HO4 HOUSE IMPROVEMENT 234 HO5 AFFORDABLE HOUSING 234 HO6 HOUSING MIX AND SPECIAL NEEDS 239 HO7 RESIDENTIAL DENSITY 243 HO8 RESIDENTIAL ENVIRONMENT 245 HO9 RESIDENTIAL HOSTELS NON–SELF CONTAINED SHARED RESIDENTIAL ACCOMMODATION 246 HO10 SPECIAL NEEDS HOUSING 248 HO11 TRAVELLERS 249 HO12 RESIDENTIAL AMENITY SPACE IN NEW DEVELOPMENTS 251 HO13 ENERGY EFFICIENCY 252 HO14 WASTE MANAGEMENT 252 HO15 WATER CONSERVATION 253

Chapter 6 217 London borough of Hammersmith and Fulham: UDP Alterations

CHAPTER 6. HOUSING

RESTATEMENT OF PART 1 POLICY G5: HOUSING

1994 Policy G5 replaced by altered text shown below

The quantity of the borough’s housing stock will be increased and its quality improved, ensuring a choice of accommodation, including for those on low incomes or with special housing requirements, by: a). Requiring the retention of existing housing, making provision to meet the strategic dwelling requirement for completion of at least 4950 dwellings between 1992 and 2006, and aiming to provide for the completion of some 1900 additional dwellings within the period to 2016. b). Requiring that new dwelling provision has regard to identified local needs in terms of size, type and affordability. c). Welcoming proposals for improvement of the existing housing stock, and by protecting and enhancing the environmental quality of, and community facilities in, residential areas.

JUSTIFICATION FOR PART 1 HOUSING G5:

1994 paras 6.1-6.84 with text shown below

A. HOUSING ISSUES: SHORTAGE

Dwelling Supply Hammersmith and Fulham is a highly developed borough with limited land available for new residential development. The Government’s Strategic Guidance for London, RPG3, sets out the additional dwelling provision requirements for each London borough for the period 1992-2006. Based on the 1992 LPAC Housing Capacity Study, a provision figure of 4950 dwellings has been set for this borough in RPG3. Although this is a minimum provision figure for the borough, regard must be given to the need to contribute to the regional housing provision for London as a whole. RPG3 therefore asks that boroughs demonstrate how they intend to exceed these minimum provision figures. In this borough it is likely that the target of 4950 dwellings will be exceeded by approximately 450 dwellings - some 3370 were completed between 1992-2001 and another 2000 dwellings from existing commitments are expected to be completed between 2002-2006.

More recent housing provision target figures are set out in RPG9 Revised Planning Guidance for the South East (March 2001) and these are for the period 2001 to 2006. These figures are underpinned by the housing capacity study for the period 1997-2016 which was carried out by the former LPAC in 1999. The study has now been published by the GLA (London’s Housing Capacity, September 2000) and will

Chapter 6 218 London borough of Hammersmith and Fulham: UDP Alterations

inform the housing provision requirements that will be set out in the London Mayor’s Spatial Development Strategy. The study revealed that the borough has the capacity to provide some 5890 additional dwellings in the period 1997-2016. For the period 2001 to 2006 referred to in RPG9, the requirement is for 4006 additional dwellings. Given that RPG9 provides the most recent strategic guidance for London, it is appropriate that this is the council’s target figure. On the basis of completions and existing commitments, the council is likely to achieve the requirement of 4006 net additional dwellings.

While the target requirements of both RPG3 and RPG9 are compatible with one another, there is some overlap between the periods 1992-2001 and 1997-2016. Taking into account the completions between 1997-2001 and the fact that much of the capacity up to 2006 is to be provided by existing commitments, the borough will have a residual capacity of 1884 dwellings for the period 2007-2016. This is detailed in the table below:

Estimated Housing Capacity 1997-2016 5890 Large identified sites (10 or more dwellings) 2710 Large windfall sites 1350 Large office windfalls 113 Small conversions 287 Small sites 720 Live-work units 50 Completions 1997-2001 -1992 Anticipated completions from existing commitments 2002-2006 -2014 Residual capacity for 2007-2016 1884

The housing provision figure for the borough is yet to be set by the London Mayor’s Spatial Development Strategy. Until this has been adopted, the residual capacity of 1884 dwellings will be used as the target for the borough during the period 2007- 2016.

Shortage The current population of London is approximately 7.3 million and the report of the London Mayor’s Housing Commission estimates this to increase to more than 8.1 million by 2016. In terms of households the London Mayor’s Housing Commission estimates that there will be 3.6 million households by 2016. Given that London is currently home to approximately 3.1 million households, this would require the provision of 31,300 additional dwellings per year. Given the backlog of existing households in housing need in London the expected growth in households places much pressure on borough’s to provide additional homes in the Capital. However, London has a limited supply of land on which to provide these additional homes: LPAC’s Housing Capacity Study (1999) estimates that London only has a the capacity to provide 273,687 additional dwellings between 2002 and 2016.

The imbalance between housing supply and demand in the whole of London applies equally to Hammersmith and Fulham. The shortage of dwellings to house residents in the borough is clearly shown in the numbers of homeless and the number of households on the council’s Housing Register. In the year up to 31st March 2000 895 households were accepted as homeless and all of these were in priority need. The council’s Housing Register stood at 4726 on 1st April 2000. Apart from the housing needs of local residents, there is an increasingly high demand for housing from those wishing to move to the borough. This has been largely reflected by a rise

Chapter 6 219 London borough of Hammersmith and Fulham: UDP Alterations

in house prices since the mid-1990s – between 1994 and 2000 the average house price in the borough rose from £118,500 to £278,600.

Policy context for addressing housing shortage Planning Policy Guidance Note 3 Housing (2000) recognises that “everyone should have the opportunity of a decent home” and advises that;

“Local planning authorities should plan to meet the housing requirements of the whole community, including those in need of affordable and special needs housing” and therefore

“take account of assessments of local housing need in determining the type and size of additional housing for which they should plan. They should assess the composition of current and future households in their area, and of the existing housing stock, and formulate plans which:

• Secure an appropriate mix of dwelling size, type and affordability in both new developments and conversions to meet the changing composition of households in their area in the light of the likely assessed need; • Encourage the provision of housing to meet the needs of specific groups • Avoid housing development which makes inefficient use of land and provide for more intensive housing development in and around existing centres and close to public transport modes; • Promote improved quality of developments which in their design, layout and allocation of space create a sense of community; and • Introduce greater flexibility in the application of parking standards, which the Government expects to be significantly lower than at present.”

B. HOUSING ISSUES: ACCESS TO HOUSING THAT MEETS IDENTIFIED NEEDS IN TERMS OF TYPE, SIZE AND AFFORDABILITY

Access A household's ability to obtain housing that is adequate for its needs depends not only on there being enough houses but also on whether there is housing suitable for the needs of that household and whether that household can afford the housing. There is a housing demand which is responsive to, or is met by, normal market forces. However, the issue is the extent to which there is a housing need which is not met by the market because of a mismatch of housing costs and incomes, or because of a lack of suitable accommodation of the right size or meeting special needs (e.g. of disabled people).

Broadly this need falls into the following categories:

(i) existing households in need – those currently living in housing not suitable to their needs and are unable to afford suitable housing in the open market

(ii) concealed households in need – those households who need to move to their own separate accommodation within the next year and cannot afford suitable housing in the open market

(iii) homeless households registered on the council’s homelessness register. The number of households on the Housing Register is still high and the number of

Chapter 6 220 London borough of Hammersmith and Fulham: UDP Alterations

homeless people has again increased. In the last quarter of 1999/2000 1056 households were accommodated in temporary accommodation, including bed and breakfast accommodation and hostels.

The council can aim to meet some housing needs through the way in which it manages its own housing stock or by nominations to Registered Social Landlords’ accommodation. However, it is necessary to also address housing need issues through land use planning: by seeking to improve access to housing by securing provision of affordable housing; seeking to ensure new housing is provided in a range of suitable types and sizes; and ensuring that the special needs of particular groups in society, such as the elderly, people with disabilities, the homeless and travellers, are recognised.

Access to affordable housing Approximately 66% of dwellings in the borough are privately owned, either owner occupied or privately rented. Access to this sector depends primarily on a household's ability to pay, although housing benefit can help some low income tenants. Most of the remaining dwellings are rented from either housing associations or the local authority - the 'social' rented sector - where rents have traditionally been lower, but access is limited by a waiting list and evidence of need.

Owner occupation Hammersmith and Fulham is still one of the most expensive areas of London in terms of house prices. In 1998 a joint household income of at least £25,000 pa. (one third of £80,000-£5000 deposit) was required to buy a one-bedroom property at minimum cost in the borough. Only 31% of borough households had a household income of more than £25,000 p.a. and many of these higher income households were already owner occupiers.

Private rented housing Traditionally the private rented sector has provided accommodation for those households which could not afford to buy and/or those households which required the flexibility and mobility that renting gives. The private rented sector caters for a wide range of households at widely varying costs. There has been an increase in the proportion of households renting from the private sector. In 1992, 20% of households rented privately and in 1998 it had increased to 23%. The proportion of higher income households privately renting has also increased quite markedly. In 1992, 34% of private renting households had incomes of over £20,800, whereas by 1998 this had increased to 49%. This compares to 32% of borough households with incomes in excess of £20,800 in 1992 and 38% in 1998. Although the proportion of higher income households in the private rented sector has increased, 30% of households still have annual incomes of less than £10,400.

The current market rents in this borough are not affordable to the majority of the borough's households. In 1998, minimum rents in this borough were £142 for a one bedroom flat and £181 and £269 for two and three bedroom flats respectively. Assuming 33% of the gross household income is to be spent on rent, the annual income required to meet lowest decile level of rents for one-bedroom flats in Hammersmith and Fulham in 1999 was £22,152 (net). This means that the gross household income required to sustain a private sector rent at the lower end of the market is even higher than that required to purchase a property (paragraph. 6.24) excluding Housing Benefit Subsidy. The median rent levels for non-self-contained

Chapter 6 221 London borough of Hammersmith and Fulham: UDP Alterations

rooms and bedsits in Hammersmith and Fulham in 1999 was £101 per week and would require a household income of £15,756 p.a.

Access to the private rented sector is further restricted to households on low incomes, because the majority of landlords require a month's rent as a deposit and a further month's rent in advance, which requires a level of savings which most low income households do not have, and income support and housing benefit are unable to provide these initial cash sums. Furthermore, the Threshold Survey for the DOE showed that 44% of landlords were unlikely to accept a tenant who is in receipt of DSS benefits.

Although bedsits, non-self-contained flats and other forms of shared housing such as hostels, may be of a relatively low standard, they often provide the only accommodation that is available to low- income single person households or to couples without children. Shared accommodation is the only accommodation available to single people, who are under 25 and on housing benefit. The council does not have a statutory duty to house the majority of these households and housing associations only have a very limited stock of accommodation available. The LPAC Report: "Houses in Multiple Occupation" (February 1994), using the 1992 London Housing Survey showed that 94% of HMO households were one- or two- person households and 73% were single person households under pensioner age, and conversely only 10% were households with children. Over half the households had a gross income of less than £00 per week and only just over a quarter had savings of more than £500. In addition, less than half the households were in full- or part-time work, over one-third were on income support and nearly half of all households were in receipt of full or partial housing benefit.

HMOs and other non-self-contained units therefore provide housing for people who would be unable to afford most self-contained accommodation in the borough. However, the stock of HMOs is declining and now provides only a small proportion of the total stock. The proportion of non- self-contained household spaces fell from 11% of the total in 1981 to under 4% in 1991. In 1991 there were 892 shared dwellings (HMOs) in the borough and they contained 2,659 household spaces. It is likely that there is an undercount of HMO households in the 1991 census but this has not yet been quantified. For the 1981 Census it was estimated that the undercount for Hammersmith and Fulham was 74.3%, if the figure was similar for 1991 there would be about 5,200 HMO household spaces in the borough (LPAC Report: "Houses in Multiple Occupation" 1994).

In summary, market rents in the private sector are not affordable to the majority of households in the borough and access to accommodation for housing benefit claimants may be difficult. However, it is often the only accommodation available to many households, particularly those without children and therefore forms an essential part of the borough's housing stock. In order to afford market rents in this sector, many households have to share accommodation and/or amenities which may result in overcrowding. Rents may also be kept at an affordable level by households occupying accommodation that is of a poor standard or inadequate for the household's needs.

Social housing The council has traditionally provided housing for people who cannot afford market housing or have special needs, particularly the more vulnerable groups in the community such as the elderly, people leaving institutional care, young children, homeless and travellers. The council needs to ensure that all groups have equal

Chapter 6 222 London borough of Hammersmith and Fulham: UDP Alterations

access to housing, including groups who have been discriminated against. The proportion of households living in local authority dwellings has fallen from 28% in 1981, to 24% in 1992 and to 21% in 1998.

In 1981 the council and GLC dwelling stock in the borough was over 20,000 units, but this has now decreased to just over 15,000 dwellings. Some of this reduction is due to council house sales as the result of the 'Right to Buy' programme and previous voluntary sales policies. Also some of the poorest quality council housing has been demolished and it has been replaced with housing association homes. Registered Social Landlords have increased their stock in the borough from nearly 6,300 dwellings in 1981 to 10,200 in 1999 and make an important contribution to the provision of affordable housing. The proportion of households living in RSL accommodation has also increased from 10% in 1981 to 13% in 1998.

Numbers on the council’s Housing Register have been affected significantly by the Housing Act 1996. The review of the Register required by the 1996 Act resulted in 2000 households being removed from the Register. However the Register is now increasing again at about 800 cases per year. The council’s affordable housing programme has resulted in nearly 1300 additional new dwellings being completed in the six years between 1993 and 1998. There was a reduction in affordable housing completions in 1998 and this may continue because of constraints on land availability and on funding.

Given the expense of private market accommodation, there is little scope for tenants of both the local authority and housing associations to move into the private sector and so release more housing for other households in need. In 1998, only 2.1% of local authority tenants and 1.5% of housing association tenants could afford market housing in the borough.

In addition 63% of council and 57% of housing association tenants (including homeless people placed in temporary accommodation) are receiving which indicates that many households have limited ability to meet the cost of their current accommodation.

Housing need The 1998 Housing Needs Survey for the borough found that 91% of households in unsuitable housing are unable to afford the cost of market housing, even the cheapest properties in the borough. In total, 11,000 households were in housing need in the borough and were unable to afford market housing. 6,100 (55.5%) of the households in housing need would need to move to an alternative home to resolve their current housing problems and remove them from need. Taking existing and projected needs and the estimated supply of affordable housing, it was estimated that an additional 7,400 to 11,000 additional affordable dwellings might be needed by 2006 to meet the estimated need in full.

In 2000, an update to the 1998 survey was carried out for the borough. The update was not a complete re-survey of households in the borough but instead reassessed the housing needs data of the 1998 study in light of the changes that have since taken place in the local housing market, and reviewed the 1998 survey analysis to ensure that it reflects the housing needs survey guidance published by DETR in July 2000. The update concluded that although property prices and rents had risen by as much as 55% and 40% respectively, the number of households in housing need have remained unchanged. The survey update explains that “in 1998 there were very few households living in unsuitable housing who were close to, or just above the

Chapter 6 223 London borough of Hammersmith and Fulham: UDP Alterations

affordability threshold and nearly all the households in unsuitable housing fell well short of being able to afford market housing". Therefore, although the update to the 1998 Housing Needs Survey concluded that the level of housing need in the borough had remained unchanged since 1998, it also stated that “other households may find it harder to access the private sector housing market” given the significant increases in house prices and rents in the borough. In conclusion, the update put the level of shortfall for affordable homes at between 925-1375 per year for the period from 1998-2006.

Meeting the need for affordable housing The council can and does meet an element of affordable housing need through the management of its own housing stock and this was taken into account in the Housing Needs Survey. Subsequent analysis of need as part of the annual Housing Investment Programme and Strategy process indicates that the higher estimate of affordable housing need (1375 dwellings per year) is now at best a conservative estimate.

The council will continue to examine the scope for increasing affordable housing provision through the refurbishment and redevelopment of existing council stock, and measures such as encouraging the reuse of empty properties in the private sector in partnership with RSLs. However, there will remain a continued need to achieve a substantial quantity of new build affordable housing.

It is not realistic to expect that the council could seek to meet all the predicted level of affordable housing need through management of its own stock, planning policy and other measures. In particular, the affordable housing need estimate is well in excess of the housing capacity figures for new housing contained in the year 2000 GLA Housing Capacity study which average 400 dwellings (new build and conversions) per year for 1997-2006. After 2006, the capacity estimate falls to 188 new dwellings per year (2007-2016). It would also not be realistic to expect all new housing to be affordable. Based on past achievements, where since 1994 65% of all new build housing has been affordable, it is considered that that is a realistic figure which should be the overall monitoring target for new affordable housing provision.

Access to housing of suitable size and type The 1999 Housing Needs Survey characteristics of households in housing need, in particular household type and size. The survey found that

69.1% of all households in housing need comprised lone parent households with 1 or 2 children and families with 3 or more children. Consequently, there is a significant need for family dwellings (2+ bedrooms) (73.2%).

These households in housing need are likely to include disadvantaged groups identified in chapter 2 (e.g. those on low incomes, unemployed, young families, single parent families). It is also therefore important to meet housing needs in order to promote social inclusion and equality.

Access for particular groups in society There are also a number of groups within the borough that have special needs and are in housing need including the elderly, people with disabilities, the homeless and travellers. Again these groups are identified in chapter 2 and it is important to meet their housing needs in order to achieve social inclusion and equality.

Chapter 6 224 London borough of Hammersmith and Fulham: UDP Alterations

Elderly households The borough’s population of people aged 65 and over is declining – between 1991 – 2000 this changed from 19,800 to 16,800 but still represents. It is projected that by 2021 this age group fall to 16,700. Older people often prefer to remain in their own homes with appropriate support. Older people often have special needs which may require adaptations or a move from the housing that they occupy. Over 50% of all special needs households contain older people compared to 17% of non-special needs households. The largest proportion of Housing Register applicants (45%) were over 80 years old. The needs of this age group tend to be different from those who traditionally occupied sheltered housing.

Disabled people Disabled people often have very specialised housing needs which involves the physical adaptation of housing, while people who are mentally ill and people with learning difficulties may require forms of hostel accommodation or communal housing. Government legislation, in particular the National Health Service and Community Care Act and Government guidance in RPG 3 and PPGs 1, 3 and 12 indicate that the council should take account of the housing needs of people with disabilities. There is clear evidence of the local need for dwellings suitable for people with disabilities. The 1999 Housing Needs Survey revealed that there were 9,323 special needs households and of these, 3,016 (32.3%) were living in unsuitable accommodation and 970 required a move to alternative accommodation with specialist adaptations or care. None of the latter households could afford suitable market housing in the borough. A specialist survey prepared for the council, identified 128 people with a physical disability who need rehousing. The demand has been double the available supply over the last 3 years and projections indicate a widening gap.

In terms of the supply of accommodation suitable for people with disabilities, it is not known how many private sector dwellings would meet mobility or wheelchair standards. However in terms of the council and housing association dwelling stock the number of dwellings is very limited. The council has only 0.26% of its stock (44 dwellings) as wheelchair units, although over 100 units are wheelchair accessible (0.6%). The Registered Social Landlord stock of wheelchair and wheelchair accessible units has increased in recent years. The housing associations 154 wheelchair units -0.5 1.3% of their stock and 79 accessible units. This gives a total public sector stock of about 377.

The council is no longer a provider of new dwellings and only has a very limited budget to adapt its existing housing to meet the needs of people confined to wheelchairs. There is not only the cost of adapting dwellings to meet the needs of people with disabilities, but also the problem of waiting for dwellings to become vacant that are both suitable for adaptation and will meet the tenant's needs. There is a particular shortage of three- and four- bedroom dwellings for households requiring a house adapted for a wheelchair.

The RSLs are increasing their stock of wheelchair accessible housing as most new housing association dwellings on ground floors are built to mobility standards and approximately 10% of the units in schemes of over 20 dwellings are built to wheelchair standards. Although people with disabilities have lower incomes than the average for the borough population and therefore often need public sector housing, approximately ¼ of special needs households are owner occupiers and a further 14% are in private rented accommodation. It is therefore important that there is a

Chapter 6 225 London borough of Hammersmith and Fulham: UDP Alterations

range of housing in the private sector stock, as well as the public sector stock, that is accessible to people with disabilities.

Homeless households People who are homeless require immediate access to temporary accommodation. For single people hostel accommodation may be appropriate, but for families, hostel and bed and breakfast accommodation is less suitable and access to permanent accommodation is important to provide and retain.

Travellers “Gypsies” are defined in section 16 of the 1968 Act as “persons of nomadic habit of life, whatever their race or origin”. The housing needs of travellers therefore differ from the needs of other groups described above. While travellers only make up a small proportion of the population of England and Wales, it is still important that their present and future housing needs are met. Circular 1/94 and the subsequent letter from the Planning Directorate of DETR dated 27 May 1998 provide guidance on the provision of traveller sites.

Policy context for access to housing The Department of Environment Circular 06/98: Planning and affordable April (1998) sets out the Government's planning policy with regard to the provision of affordable housing. This Circular states that ;

"A community's need for affordable housing is a material planning consideration which may properly be taken into account in formulating development plan policies and deciding planning applications."

DETR Circular 06/98 Planning and Affordable Housing (1998) amplifies PPG3 and provides detailed guidance for the provision of affordable housing. It states that;

“...in assessing the suitability of sites to be identified in the plan and any sites that may come forward not allocated in the plan, the following criteria should be taken into account:” which includes

“b) in Inner London, housing developments of 15 or more dwellings, or residential sites of 0.5 of a hectare or more, irrespective of the number of dwellings;”

Development Plans have to consider their effect on different groups in the community. In PPG12 (December 1999) it is stated that:

"Local planning authorities in preparing development plans, should consider the relationship of planning policies and proposals to social needs and problems, including their likely impact on different groups in the population, such as ethnic minorities, religious groups, elderly and disabled people, women, single parent families, students and disadvantaged people living in deprived areas".

The Chronically Sick and Disabled Persons Act 1970 3-(1) states that:

"Every local authority for the purposes of Part V of the Housing Act 1957 in discharging their duty under section 91 of the Act to consider housing conditions in their district and the needs of the district with respect to the provision of further

Chapter 6 226 London borough of Hammersmith and Fulham: UDP Alterations

housing accommodation shall have regard to the special needs of chronically sick or disabled persons."

As a result of the 1988 Housing Act local authorities are no longer the main providers of housing for people who cannot afford to house themselves adequately but the role is now an enabling one. In this enabling role it is important that the planning system facilitates the increase of the dwelling stock suitable for people with disabilities.

Circular 1/94 Gypsy Sites and Planning outlines revised Government policy in relation to the planning of gypsy site provision. It states in paragraph 9 that;

“… local planning authorities should continue to indicate the regard they have had to meeting gypsies' accommodation needs. Repeal of the statutory duty will make it all the more important that local authorities make adequate gypsy site provision in their development plans, through appropriate use of locational and/or criteria-based policies.”

C. HOUSING ISSUES: QUALITY OF HOUSING AND RESIDENTIAL ENVIRONMENT

Quality of housing and the residential environment Much of the borough's housing stock, particularly private housing was built before 1919, which accounts for a high proportion (over a quarter of dwellings) which lack basic amenities, or are damp or in need of repair. The houses in private ownership that are in the greatest need of improvement are private rented dwellings. Although the council's dwelling stock was built more recently than the private stock, this borough has one of the oldest public sector stocks in London. The age and poor quality of some of the housing means that the council is faced with a continuing programme of repairs and improvement work.

The council's improvement programmes over the last 30 years have contributed to a reduction in the number of dwellings which are classified as 'unfit', although the number of dwellings which require substantial repairs has increased. 18% of private dwellings require repairs of over £5000. The council targets Disabled Facilities Grants, Discretionary Renovation Grants and Home Repairs Assistance amongst households that are most socially and financially disadvantaged in the private sector. The council also encourages energy efficiency and conservation by the provision of advice and assistance to householders.

Apart from the need for improvement to houses many residential areas are in need of environmental improvements, in order to improve pedestrian safety, particularly for the more vulnerable sections of the community - the elderly, women and children. There is a need to reduce through traffic in residential areas and reduce parking stress, to create safe places for children to play and to create a safe environment through adequate street lighting and other design measures.

It is important not only to try to bring older housing up to satisfactory standards but also to ensure that housing that is currently being built, converted or extended is constructed to standards which will provide adequate housing for as wide a range of households as possible but without increasing the costs of that housing to unreasonable levels.

Chapter 6 227 London borough of Hammersmith and Fulham: UDP Alterations

The density of new residential development is also an important issue in terms of both the residential environment and the wider issue of sustainable development. Higher densities help to reduce the total amount of car travel and to reduce energy consumption and emissions. However the benefits of higher densities, particularly in inner urban areas are often outweighed by increased congestion and the increase in energy consumption and emissions that this can cause (Reducing Transport Emissions Through Planning, DoE & DOT 1993). Existing densities are high in much of this borough because many of the existing residential areas lack adequate private amenity space or provision for off-street car parking. There are often considerable problems of on-street parking stress and congestion. It is therefore considered appropriate to seek densities in this borough which enable the provision of adequate amenity space and off-street car parking. However, in areas close to a wide range of facilities such as town centres, in areas of high public transport accessibility, or where the housing is catering for households unlikely to own private cars, higher densities may be appropriate, where the development may be car free or the off- street parking provision reduced

Policy context for quality of housing and the residential environment The council has powers to influence the density, size, type and standard of dwellings. Within overall limits set by the council, the mix of dwelling types in any particular scheme is normally considered to be a matter for the developer, but certain locations are better for certain types of development than for others e.g. town centres on the whole are better for households without children; sites with good access to open space, for houses suitable for families with young children. In terms of housing to meet special needs the planning authority can only allocate the land and negotiate with developers but it does not have the financial resources to ensure the scheme is built.

PPG3 Housing (2000) attaches importance to good design and layouts of developments and encourages more efficient use of land without compromising the quality of the environment. The guidance advises that local planning authorities should adopt policies which:

• “create places and spaces with the needs of people in mind, which are attractive, have their own distinctive identity but respect and enhance local character; • promote designs and layouts which are safe and take account of public health, crime prevention and community safety considerations; • focus on the quality of the places and living environments being created and give priority to the needs of pedestrians rather than the movement of parking of vehicles; • avoid inflexible planning standards and reduce road widths, traffic speeds and promote safer environments for pedestrians; and • promote the energy efficiency of new housing where possible.”

Strategic Guidance (1996) also asks boroughs to consider the urban/residential design implications of the need to maximise energy conservation and sustainability and to facilitate the kerbside collection of recyclable household waste.

STRATEGY

Chapter 6 228 London borough of Hammersmith and Fulham: UDP Alterations

Shortage The current estimates for additional housing supply in the borough are 4950 dwellings between 1992 and 2006 and 5890 additional dwellings between 1997 and 2016 , most of which will be as a result of new build. Taking into account the completions between 1997-2001 and the fact that much of the capacity up to 2006 is to be provided by existing commitments, the borough will have a residual capacity of 1884 dwellings for the period 2007-2016. The council considers that the current estimate of housing supply is reasonable, but will not regard this as a ceiling figure, as long as the housing that is provided is in accordance with other policies in the Plan, and that other Plan policies are not undermined.

The council will therefore seek to increase the borough’s housing stock by requiring the retention of existing housing, making provision to meet the strategic dwelling requirement for to 2016. See policies HO1, HO2 and HO3.

Access The council recognises the need to provide more housing in London and in the borough. It is estimated that there are about 11,000 households in housing need in the borough who are unable to afford market housing. 6,100 (55.5%) of the households in housing need would need to move to an alternative home to solve their current housing problems and to remove them from need. Taking existing and projected needs and the estimated supply of affordable housing, it is estimated that an additional 7,400 to 11,000 additional affordable dwellings might be needed by 2006 to meet the estimated need in full. There is therefore clearly a need for the maximum possible proportion of all new dwellings provided in the borough to be affordable.

PPG3 establishes a principle of releasing land specifically for low-cost housing when general housing would not be acceptable. Although this was specifically for rural areas the principle can be applied to urban areas. LPAC in 1994 Strategic Advice recommend in Policy H13 that boroughs should include such a policy in their UDPs. In this borough the location, the high value and restricted availability of land produces a situation where high-cost housing tends to be built and the full range of housing need is not satisfied. The UDP therefore includes policies to ensure that a maximum feasible proportion of any new housing is made available and retained as affordable housing. Because of this need for affordable housing, and the scarcity of sites for new residential development, the UDP includes policies that will enable sites to be released specifically for affordable housing.

The provision of new housing is not in itself sufficient to deal with need because it is clear there is a major problem for lower income sectors of the population, including people setting up home for the first time, in affording to buy or rent decent accommodation. In addition, there is insufficient provision of housing suitable for people with disabilities and elderly people in need of care. Hammersmith and Fulham has an overwhelming need for affordable housing and the maximum possible proportion of all additional housing should be affordable, if the housing needs of the local population are to be addressed.

All proposals for residential development must have regard to identified local needs in terms size, type and affordability. See policies HO5, HO6, HO8, HO9, HO10 and HO11.

Chapter 6 229 London borough of Hammersmith and Fulham: UDP Alterations

Quality of Housing and the Residential Environment The third part of the council's strategy for the UDP is concerned with the quality of housing and its environment. It is important to ensure that new dwellings, provided both as new-build and conversions, are built to adequate standards so that they can contribute to the needs of the borough's population. The condition of the local environment is an important factor in people's quality of life and many policies throughout the Plan are concerned with protecting and enhancing it. In particular, the density of new residential development is important not only because of the impact on the local area but because of the effect that it can have on reducing the use of private cars.

The council will therefore welcome proposals for improvements of the existing housing stock and protect and enhance the environmental quality of residential areas. See policies HO7, HO8, HO12, HO13, HO14 and HO15.

PART 2 HOUSING POLICIES

HO1 PREVENTION OF THE LOSS OF EXISTING RESIDENTIAL ACCOMMODATION

Planning permission will not normally be granted for developments which would result in a loss of permanent residential accommodation as a result of redevelopment, change of use to other uses including to Class C1 Uses (Hotels) and to short term letting. These uses will only be permitted if they are in accordance with policies HO9 and HO10. Where the redevelopment of residential accommodation is proposed, unless there are very special circumstances, the council will require: i) No net loss of residential accommodation when measured in dwellings, bedspaces and residential floorspace and no loss of a type of accommodation for which there is a continuing and known need; ii) The replacement of that residential in accordance with policy HO5 Affordable Housing and policy HO6 Housing Mix and Special Needs. However, the provision of replacement residential accommodation (for example by the construction of an additional floor) will not be an acceptable reason for allowing the displacement of existing residential floorspace.

6.85 In order to meet the housing needs of the borough as explained in paragraph 6.3-6.67, it is essential that there should be no net loss of the existing housing stock. The change of use of permanent residential accommodation to serviced apartments, short-term holiday lets and other forms of temporary accommodation for people having neither their employment nor their main residence in London results in a loss of dwellings for permanent residents. Under the GLC (General Powers) Act 1983 the use of residential accommodation for temporary sleeping accommodation occupied by the same person for less than 90 consecutive nights is a material change of use requiring planning permission. Planning permission for hotels for tourists will be considered under policy E11, but will usually only be appropriate in non-residential areas.

6.86 Some Where dwellings are currently vacant or and have been used for non- residential purposes. If there is a development application for these buildings, the

Chapter 6 230 London borough of Hammersmith and Fulham: UDP Alterations

council will encourage may permit the reinstatement of residential use if they the accommodation provides or can be made to provide a reasonable standard of accommodation that accords with DoE Circular 12/92.

6.87 If redevelopment is permitted, at least the same number of units as were there originally should be replaced, but it is also important that there should be no loss of residential floorspace or bedspaces as this would be likely to reduce the total number of people who could be housed in the development. The replacement of existing houses with new dwellings often results in a different type of housing being provided, which meets different housing needs. It is often the older, cheaper, rented accommodation that is demolished, whereas the new dwellings built will usually be for owner occupation, at much higher prices than the previous occupants could afford.

6.88 The replacement of residential accommodation lost as a result of a change of use by, for example, the construction of an additional floor, is not acceptable because of intensification of use and the possible effect on on-street car parking and conflict with policy HO3 House Conversions.

HO2 VACANT HOUSING

The council will encourage the maximum residential use of vacant and underused housing by those means available to it, which can include ensuring that flats above shops have a separate access when there is development at the ground floor level to enhance the residential role of retail areas.

6.89 To make better use of the borough's housing stock it is essential that the council use the powers available to it to return vacant dwellings to residential use. From the 1991 Census it is estimated that over 6,000 dwellings are vacant and the vast majority of these are thought to be privately owned. The 1998 Private Sector House Condition Survey estimated that 7% (3910 dwellings) of the private sector dwelling stock were vacant, and of these 896 were derelict. The council has a programme of private sector leasing to provide accommodation for homeless families which may help to reduce the number of vacant dwellings in the borough.

6.90 Much of the accommodation over shops in the borough was originally built for residential use. Over the years some of this accommodation has been lost as a result of change of use. In order to meet housing needs (see paragraphs 6.3-6.84) the council will encourage wherever possible its the return of vacant and under-used accommodation to residential use, if it can be made to provide a reasonable standard of accommodation (paragraph 6.86). In order to encourage the residential use of accommodation above a shop it is important to protect or create a separate access to that accommodation when development is taking place at the ground floor level (policy SH5).

HO3 HOUSE CONVERSIONS

The council will normally require proposals for the conversion of one or more dwellings (whether self-contained or not) or for the self-containment of non- self-contained dwellings to conform with the relevant standards set out in Chapter 11. However:

1. The council will not normally permit such proposals

Chapter 6 231 London borough of Hammersmith and Fulham: UDP Alterations

i) In streets which are above the notional on-street overnight parking capacity, in accordance with standard S8.2; ii) In streets where there is less than 10% free notional on- street overnight parking, unless the number of dwellings is limited in accordance with standard S8.2;

Conversion of buildings into one or more dwellings will not be permitted: a) Where there would be inadequate on- or off-site street parking available to meet parking needs of the develoment (see standard s.2); or iiib) Where the net floor area of the original dwelling is less than 110 120 sq.m.; or iv) Where the proposed conversion would result in the loss of existing non-self-contained units or bedsitting rooms that provide a reasonable standard of accommodation; vc) Where the conversion provides only self-contained bedsits/1 person flats.

2. The council may permit proposals which involve the creation of non-self- contained dwellings that are not in accordance with the standards in Chapter 11 and (i)-(iv) above, on the following basis: i) That permission is granted for a temporary period not exceeding five years, and ii) That the non-self-contained dwellings can provide a reasonable standard of accommodation, and iii) That there is a legal agreement requiring no change in the internal layout as permitted without variation of this agreement.

6.91 The conversion of existing residential properties into two or more residential units can be an important source of additional dwellings in the borough. However, the council has to ensure that where there are proposals for an increase in the dwelling stock, that there is no adverse effect on the residential environment. Standards contained in Chapter 11, including S3, S6, S7A and S8, are therefore relevant in assessing the quality and acceptability of additional residential units. Conversions provide an important source of additional self- contained dwellings in a densely built up borough like Hammersmith and Fulham, where there are relatively few sites available for new building. Many dwellings in the borough, particularly Victorian and Edwardian houses of 4 or more storeys, are far too large for single family occupation, particularly in relation to falling household size. Where the houses are in single family occupation it is possible that they are under-occupied and that their conversion into self- contained flats will result in a net gain in accommodation. However, the council has to ensure that the increase in dwelling stock as a result of conversions does not have an adverse effect on the residential environment, and would not wish to see over-development of existing properties by large extensions at the rear and roof level, to the detriment of the amenities of surrounding properties.

Chapter 6 232 London borough of Hammersmith and Fulham: UDP Alterations

Reasons for 1.(i) and (ii)

6.92 Where conversions result in additional dwelling units there is usually an increase in car ownership in the area and an increase in the demand for on-street car parking space, as very few properties in the borough have space to provide adequate off-street car parking. A Surveys of night-time parking in the borough carried out in between 1992 and 2001, in accordance with the procedure outlined in Appendix 11.1 indicated that extensive areas of the borough already have no free on- street parking capacity. Any additional conversion of dwellings, where the pressure on on-street parking space is already so severe that there is no available night-time on-street parking space, will further exacerbate the severe problems of congestion. The council also wishes to avoid these problems in streets where there is only limited on-street night-time parking capacity i.e. less than 10% free space, by restricting the number of additional dwelling units that can be provided as a result of conversions. In these streets, conversions will not be permitted unless off-street car parking is provided in accordance with standard S18.1 and Table 11.1.

Reason for 1.(iii)

6.93 The smaller terraced houses in the borough provide a source of cheaper accommodation suitable for families and it is important to ensure that this stock is not reduced because of conversion into flats. In addition, it is difficult to achieve two separate units with adequate internal and external space standards by converting terraced houses of under 110 sq.m.

Reason for 1.(iv)

6.94 The council wishes to resist the loss of houses which are already divided into non-self-contained units and bedsitting rooms because conversion does not increase the number of units available. It is also concerned to retain and secure an adequate variety of accommodation to meet the range of local needs. Non-self-contained 'shared' accommodation and bedsitting rooms provide a vital source of accommodation for young and relatively mobile people, for people who are unable to gain access to other forms of housing, and for people who would otherwise be homeless (especially single "non-priority" homeless). It is important that bedsitting rooms and non-self- contained flats are not lost because they are currently in poor condition, if they can be improved to a reasonable standard without converting them to self-contained flats. A reasonable standard will be any accommodation that accords with or can be made to accord with DoE Circular 12/92.

Reason for 1.(v)

6.95 Conversions should provide a mix of unit size in order to meet the needs of residents and proposals which include all small units result in a greater demand for on-street car parking.

Reason for 2.

6.96 The council recognises the urgent need for more lower cost accommodation and although non-self-contained flats are of a relatively low standard, they do provide an important source of housing for single people and people unable to gain access to other forms of housing, particularly for single people who would otherwise be homeless (paras. 6.27-6.33). Although these non-self-contained flats and rooms are required to meet current needs, they do not meet the conversion standards in

Chapter 6 233 London borough of Hammersmith and Fulham: UDP Alterations

Chapter 11 and should therefore be for a temporary period to ensure that, when this form of accommodation is no longer required, the dwellings can be converted into self-contained flats, which can meet modern standards. Of particular concern is the likely impact on on-street parking, if the small non-self-contained flats were subsequently converted to self-contained flats for owner occupation. The 1991 Census shows that there is a much higher car ownership rate for owner occupied flats than for occupants of rented non-self-contained flats and rooms. It is therefore necessary for an applicant who wishes to convert a house to small non-self- contained units, to enter a legal agreement to ensure that internal alterations leading to self-containment will not take place without the agreement of the council.

6.97 Although it is accepted that these non-self-contained flats will not meet the conversion standards in Chapter 11, they should meet the standards of DoE Circular 12/92.

HO4 HOUSE IMPROVEMENT

The council will monitor the condition of the housing stock and take such action that is considered appropriate, in the light of its powers and resources.

6.98 The condition of the borough's housing stock still requires major improvement and the Housing Act 1985 (as amended by the Local Government and Housing Act 1989) requires the council to consider the housing conditions in its district at least once a year, to determine what action to take in respect of its statutory functions under the Housing Act. The council has policies to direct resources to deal with houses in multiple occupation, and substandard private rented accommodation requiring repair notices. The council will continue to fund a Care and Repair Agency scheme, to assist elderly and low income owner occupiers towards carrying out home improvements and repairs. The council is currently considering a possible Renewal Area.

HO5 AFFORDABLE HOUSING

In order to ensure that new residential development in the borough includes appropriate provision for households on low-middle income including key workers, the council will apply the following policies and where appropriate use CPO powers. i) In considering applications for wholly residential development the council will regard the provision of affordable housing as a material consideration and will negotiate to secure the maximum reasonable proportion of permanently available affordable housing. ii) Where applications are made for mixed use schemes, particularly in town centres, and sites in riverside employment zones which abut the river the council will expect, where housing is appropriate, permanent affordable housing to be part of the scheme (policies E1, & E2 & E3 and Chapter 10 Site Proposals).

1. There will be a general presumption that the maximum reasonable proportion of affordable housing will be provided as part of any proposal that

Chapter 6 234 London borough of Hammersmith and Fulham: UDP Alterations

is wholly for residential development, or is for mixed use development that includes residential provision.

In all such cases, the proportion of affordable housing on any particular site will be determined having regard to the overall level and type of local need for affordable housing in the borough at the time of the application and:

• The overall monitoring target of 65% of all new housing to be affordable, and

• The need to achieve a successful residential development. iii2) Where non-residential sites and buildings, not in an employment zone or town centre, are vacant and policies of the plan would normally require retention of employment uses and/or community service uses, the council may permit residential development but only for permanently available affordable housing, provided that the site is environmentally satisfactory proposal, would not predjudice the continuation of adjacent employment uses, would replace existing community services and the site is environmentally satisfactory (see also policies E3 and CS4)., where appropriate, subject to the replacement of community service uses (as defined in Chapter 8) and subject to site proposals (Chapter 10). iv) Permanently available affordable housing will normally be required where a development on an employment site, not in an employment zone or town centre - in accordance with Employment policy E3 and Plot Ratio standard S1 - results in surplus land.

The following will apply to the above policies (i) to (iv):

a) The affordable housing must be permanently available to the initial and subsequent occupiers in need of affordable housing. and It may include local authority, housing association, housing co-operatives and forms of shared ownership to meet the needs of low- to middle- income households and key workers, who cannot afford adequate market housing in Hammersmith and Fulham. This may be through the disposal of land or land and buildings to the local authority, Registered housing association or other social body at a cost that reflects the value of the land for affordable housing.

3b) The council will regard Hhousing will be regarded as “affordable” only if its cost to the occupier, however it is provided, is equivalent to the cost of registered housing association Social Landlord accommodation of similar size and quality in the borough. It must also be available both to initial and subsequent occupiers in need of affordable housing.

c) in negotiating for affordable housing on a site, the council will have regard, amongst other relevant factors, to the overall level of need for affordable housing in the borough at the time of the application and which will be defined in Supplementary Planning Guidance.

6.99 The overwhelming need for additional housing in this borough is for affordable housing. The high cost of owner occupation and private sector rents has meant that a high proportion of low- to middle-income households, including key

Chapter 6 235 London borough of Hammersmith and Fulham: UDP Alterations

workers (see Supplementary Planning Guidance cannot afford to house themselves adequately in the private market. Key workers include workers whose incomes are relatively low, but who provide services essential for the borough and include workers such as public transport workers, health service employees and teachers.

6.100 This lack of affordable housing has resulted in high levels of homelessness - 1,113 709 households were accepted as homeless and in priority need during 1992/93 and there are over 6,500 households on the council's waiting list (paras. 6.34-6.37).

6.101 It is essential therefore that the council ensures that land is made available for the provision of affordable housing This is in accordance with Government Guidance in PPG3 Housing, which states that: "A community's need for affordable housing is a material consideration" and "where there is a demonstrable lack of affordable housing to meet local needs planning authorities may indicate an overall target for the provision of affordable housing throughout the plan area ... (and) ... may reasonably seek to negotiate with developers for the inclusion of an element of affordable housing."

Reason for (i)

6.102 In order to meet the need for affordable housing, it is essential that applications for wholly residential schemes do provide the maximum reasonable proportion of permanently available affordable housing. In considering applications for residential development the council will seek to negotiate the maximum reasonable proportion of affordable housing, taking into account the overall level of need for affordable housing in the borough, which the council will keep under review and publish in Supplementary Planning Guidance. Other relevant factors such as site size will also be taken into account.

Reason for (ii)

6.103 In this borough, as there are relatively few sites purely for residential use, they will not result in a significant increase in affordable housing. It is therefore important that on sites, where residential is suitable as part of a mixed use development, particularly permanently available affordable housing is provided. It may be appropriate, where the residential use is a subsidiary element to the main commercial and employment use, for up to 100% of the new housing to be affordable.

Reason for (iii)

6.104 Throughout the borough, there are sites which are in a variety of non- residential uses - business and community service uses. The council recognises the importance of these uses, in providing a variety of employment opportunities and local services close to residential areas, in providing sites for builders' yards, car repairs etc., and in providing premises for a wide variety of community activities; policies in Chapter 7 and Chapter 8 are designed to ensure that these uses do remain. The council may however, because of the overwhelming need for affordable housing, permit the development of these non-residential sites if they are vacant and are environmentally satisfactory for housing and any community service use is replaced, for permanently available affordable housing If there is no proposal for affordable housing the employment or community service use remains the priority. These sites are in a similar situation to sites that would be made available for permanent affordable housing in rural areas (PPG3 Housing (March 1992 Annex A)

Chapter 6 236 London borough of Hammersmith and Fulham: UDP Alterations

where sites are released as an exception to normal policies for the provision of housing for general housing demand which makes provision for:

"the release of small sites which development plans would not otherwise allocate for housing within or adjoining existing villages, and on which housing would not normally be permitted"

Reason for (iv)

6.105 In some of the less accessible areas of the borough especially where plot ratios are lower (Plot Ratio standard S1), it may be possible to replace the employment use on a part of the site (where the whole of the site is not required for the maximum permissible employment floorspace in accordance with policy E3), in a development that is appropriate in design terms to the surrounding area. This is most likely in areas where the existing development is 3 or more storeys. Where the remaining part of the site is suitable for housing, it should be developed for affordable housing in order to meet housing needs (paras. 6.21-6.42). The development of employment uses on part of the site will permit an economic return on the development and enable the remainder of the site to be developed for affordable housing.

Reason for (a) and (b)

6.106 The housing must be permanently available as affordable housing. Appropriate arrangements to ensure this could include planning agreements, or the land being developed either by a registered housing association, a local authority or a housing co-operative, or alternatively the houses could be built by the developer and managed by one of these organisations. The council has taken the cost of housing association accommodation as its measure of affordable housing. This is because housing associations are likely to be the main providers of affordable housing in this borough; this measure enables the economics of providing affordable housing to be taken into account; and, registered housing association rents have to be affordable by those in low paid employment. This measure of affordability is not intended to rule out any other method of affordable housing provision but to provide a realistic guide to the cost whether to a tenant or owner occupier.

Reason for (c)

6.107 The overall level of need for affordable housing in the borough is affected by a variety of factors which tend to fluctuate fairly rapidly. The most important of these are house prices and private sector rents, but also include household incomes and the supply of affordable housing in the borough. Therefore, although an overall target for the provision of affordable housing to meet local need could be included in the plan (PPG3 para. 38), it is considered more appropriate to include it in Supplementary Planning Guidance (SPG) which can be revised more frequently than the UDP. SPG also provides the background data outlining how the overall level of need is determined. This SPG: Housing Needs Assessment will be an important material consideration when negotiating for affordable housing.

Reason for 1.

The overwhelming need for additional housing in this borough is for affordable housing. The high cost of owner occupation and private sector rents has meant that a high proportion of low-middle income households, including key workers cannot afford to house themselves adequately in the private market (see Housing Needs

Chapter 6 237 London borough of Hammersmith and Fulham: UDP Alterations

Survey). Key workers include workers whose incomes are relatively low, but who provide services essential for the borough and include workers such as public transport workers, health service employees and teachers.

In order to meet the need for affordable housing, it is essential that applications for wholly residential schemes provide the maximum reasonable proportion of permanently available affordable housing. The council endeavours to meet the need for affordable housing in the borough as much as possible but recognises that there is limited capacity in the borough. Since 1994 65% of all additional dwellings have been affordable. This target is therefore considered both realistic and reasonable for the delivery of affordable housing in the borough and would enable the council to maintain its achievement to date. It should be stressed that the target of 65% is for monitoring purposes only and will help inform any future review of the UDP in accordance with the advice given in PPG12 which advises that policies should include indicators to enable monitoring during the plan period. The target is therefore not fixed and is not to be applied directly to individual sites. In determining the proportion of affordable housing that should be provided on any one site the council will consider the amount of affordable housing that has been achieved borough-wide in the context of achieving the 65% monitoring target, as well as the overall level of need for affordable housing, both of which the council will keep under review.

The amount of affordable housing that should be provided on a particular site also needs to be a considered in light of a number of factors which normally cannot be properly assessed until development is imminent. These factors include the number of housing units that can be built; the method of provision and the financial arrangements, in particular the availability of subsidy at the appropriate time for Registered Social Landlord accommodation; the market conditions affecting land costs; and the extent to which the development would be expected to fund public transportation improvements and other facilities related to the development.

The DETR Circular 06/98 “Planning and Affordable Housing (1998) states that the size of a site is important in assessing the suitability of the site for an element of affordable housing. The Circular suggests a site size threshold of 15 dwellings of 0.5ha, irrespective of the number of dwellings. In this borough there is a shortage of sites availab.le for development and the majority of sites are small, under 0.5ha. Given this and the overwhelming need for affordable housing in this borough, affordable housing should therefore be provided on all appropriate sites, including sites of less than 0.5ha or those that are capable of providing less than 15 dwellings.

The size and type of affordable dwellings within any residential scheme should reflect local housing need as well as the suitability of an individual site. The Housing Needs Survey and the council’s Housing Register will therefore both be material in determining a suitable mix of size and type of dwelling.

In this borough, as there are relatively few sites purely for residential use, they will not result in a significant increase in affordable housing. It is therefore important that on sites, where residential is suitable as part of a mixed use development, particularly in town centres, key local shopping centres and in other shopping parades or predominantly commercial areas, permanently available affordable housing is provided. It may be appropriate, where the residential use is a subsidiary element to the main commercial and employment use, for up to 100% of the new housing to be affordable.

Reason for 2.

Chapter 6 238 London borough of Hammersmith and Fulham: UDP Alterations

Throughout the borough, there are sites that are in a variety of non-residential uses - business and community service uses. The council recognises the importance of these uses, in providing a variety of employment opportunities and local services close to residential areas; policies in Chapter 7 and Chapter 8 are designed to ensure that these uses do remain. The council may however, because of the overwhelming need for affordable housing, permit the development of these non- residential sites if they are vacant and are environmentally satisfactory for housing and any community service use is replaced, for permanently available affordable housing. The council may not permit affordable housing if the development might prejudice the continuation of adjacent employment uses and it should be noted that exception does not apply to those employment site within town centres and employment zones (see policies TC5 and E1).

If there is no proposal for affordable housing the employment or community service use remains the priority. These sites are in a similar situation to sites that would be made available for permanent affordable housing in rural areas (PPG3 Housing (March 2000) Annex B) where sites are released as an exception to normal policies for the provision of housing for general housing demand which makes provision for “the release of small sites which development plans would not otherwise allocate for housing within or adjoining existing villages, and on which housing would not normally be permitted"

Reason for 3

The council has taken the cost of registered social landlord accommodation as its measure of affordable housing. This is because registered social landlords are likely to be the main providers of affordable housing in this borough; this measure enables the economics of providing affordable housing to be taken into account; and, registered social landlord rents have to be affordable by those in low paid employment. This measure of affordability is not intended to rule out any other method of affordable housing provision but to provide a realistic guide to the cost whether to a tenant or owner-occupier.

Where the provision of affordable housing is secured, section 106 legal agreements may be used to ensure that new dwellings remain affordable and are only occupied by those in local housing need.

HO6 HOUSING MIX AND SPECIAL NEEDS

1994 Policy HO6 replaced by altered text shown below

1. Change of use or conversion of existing buildings to residential use will not be permitted unless the ground floor units, and any on upper floors reached by lift, are accessible by wheelchair, or unless it would be impracticable to provide such access having regard to the characteristics and layout of the existing building and its immediate surroundings.

2. Development for 20 or more dwellings will only be permitted if:

Chapter 6 239 London borough of Hammersmith and Fulham: UDP Alterations

a) 10% of the units are designed to be suitable for occupation by wheelchair users; and b) A mixture of units of different sizes is provided to meet the needs of family and non-family households.

3. The provision of housing for other groups in the community with special needs will also be welcomed in appropriate locations subject to provision of affordable housing in accordance with policy ho5 and satisfactory environmental and traffic conditions.

6.108 A policy is required in the Plan because Strategic Planning Guidance for London (RPG3) makes it clear that UDP's should allow for a wide range of housing provision and states:

"Planning policies must make adequate provision for general housing needs and the wide variety of market demand, together with allowance for special needs housing, such as housing for disabled people".

Part M of the Building Regulations ensures that the needs of people with disabilities are met in public buildings but does not apply to residential buildings. It is essential to ensure the council makes adequate provision for housing for people with special needs, including people with disabilities, the frail elderly and people requiring short term housing

Reason for (i) a) 1

6.109 New housing should be designed to enable less mobile residents, including the elderly and people with disabilities to live as independently as possible in the community. A high proportion of elderly people have a physical disability. Research by OPCS (1988) indicates that for people aged 65 and over, 45% have a physical disability and for those aged 75 and over it rises to 61%. In this borough in 1991 over quarter of all households (nearly 18,000 households) contained a person of over pensionable age and 7,300 persons are over 75 years of age. It is also known that approximately 2,030 people in the borough use wheelchairs (see para. 6.47) although not all of these people are confined to wheelchairs.

9,323 (12.5%) households contain special needs members. Special needs households are far more likely to contain older persons; 51% of all special needs households contain older people compared to 17% of non-special needs households. The average income of special needs households, excluding benefits, is only £8,804 compared with an average of £21,764 for non-special needs households. Special needs households are also more likely to be living in unsuitable housing; 32% of all special needs households are living in unsuitable housing compared with 13% in the borough as a whole. 44% of special needs households are local authority or tenants of registered social landlords. Over 2,900 special needs households contain at least one special needs member in housing need.

6.110 In order to ensure that people with physical disabilities can live as independently as possible, an increasing proportion of the general housing stock should be designed to mobility standards. Mobility housing is ordinary housing built to a certain basic standard so that it can be adapted to be lived in (if on one level) or visited (if it has stairs) by people with disabilities who are not confined to a wheelchair. The features are a level or ramped access, doors and hallways wide

Chapter 6 240 London borough of Hammersmith and Fulham: UDP Alterations

enough for wheelchairs and, if there are stairs, a downstairs W.C. Part M of the Building Regulations ensures that new build housing is built to mobility standards but it is important to also ensure that wherever possible additional residential units resulting from conversions and change of use should also be built to Mobility Standards. The Standards applying to additional units not covered by Part M. These standards are based on the publication Mobility Housing (DoE Housing Directorate Occasional Paper 2/74) and are included in Supplementary Planning Guidance.

6.111 If all new ground floor units and those reached by lift are built to mobility standards it will allow people with disabilities more choice of housing and will make it less necessary for residents to move if they become less mobile. Housing designed to mobility standards will also benefit households with young children, who need to use prams and pushchairs and would benefit from a downstairs W.C. In 1991 there were over 7,000 households with children under 5 years of age, that is one in ten of all households in the borough.

Reason for (i) b) 2(a)

6.112 Wheelchair housing is housing specifically designed to meet the needs of people who use wheelchairs all of the time. It can be adapted to meet the requirements of particular individuals. It needs to be on one level and the main feature additional to mobility housing is that space standards should be generous enough to allow a wheelchair to manoeuvre. These standards are based on the publication Wheelchair Housing (DoE Housing Directorate Occasional Paper 2/75) and are included in Supplementary Planning Guidance.

6.113 Very little of the existing housing stock is suitable for people confined to wheelchairs and there is currently a shortage of such dwellings (see paragraphs 6.46-6.50), therefore a proportion of new-build dwellings should be designed so that they can be easily adapted to meet the needs of a person confined to a wheelchair. As people who use wheelchairs are as varied in their needs as the rest of the population, there should be a choice of different types of wheelchair housing across different tenures.

6.114 The council recognise that there is an additional cost in providing housing built to wheelchair standards because of the cost of providing higher than average space standards, therefore wheelchair housing will normally only be sought on larger developments of over 20 dwellings.

6.115 “Physically disabled” is the main category of special needs. There are 6,457 households (63.3% of special needs households) with a physically disabled person and 1,771 (19.0%) with frail elderly household members. 970 households require a move to alternative accommodation with specialist adaptations or care. 55% of these households were local authority tenants, 24.2% private renters and 9.6% in owner occupation. Approximately 1,200 households in the borough, with a member with a physical disability, are living in unsuitable accommodation. Even if not all these households require accommodation suitable for a person in a wheelchair, it would indicate that between 1 and 2% of the borough's households may require housing built to wheelchair standards. As wheelchair housing is only likely to be included in larger new build schemes a proportion greater than 1-2% of new dwellings will need to be built to wheelchair standards. The council considers that 10% of dwellings on sites meeting the policy's criteria should be built to wheelchair standards. to assist in meeting this need. If this proportion is achieved on larger sites then the stock of new dwellings built to wheelchair standards will not increase

Chapter 6 241 London borough of Hammersmith and Fulham: UDP Alterations

by only about 40 units over the plan period, because there are relatively few large sites in the borough and a number of these already have outstanding planning permissions.

6.116 In considering whether a proposed residential development should include wheelchair housing the council will have regard to whether the proposed site is easily accessible in terms of distance and access for wheelchairs to local facilities, particularly to local shops and services. Reason for (iii) 2(b)

6.117 The council will endeavour to ensure that varying sizes and types of housing are developed in future schemes in order to cater for the needs of different households having regard to the council’s Housing Needs Survey. Except where units are designed for special needs (e.g. sheltered housing), or on town centre sites, a proportion of the units will be expected to provide family accommodation (i.e. containing at least a living room and 2 bedrooms i.e. 3 habitable rooms of which one bedroom must exceed 10.2 sq.m).

Reason for (iv) 3

6.118 There is also a need for sheltered housing and accommodation suitable for those groups in the community with special needs such as the frail elderly, people with physical and mental disabilities, people needing short term accommodation such as the homeless, students, temporary workers and travellers (this does not include holiday lets for visitors which will be considered under policies E10 and E11 in Chapter 7). While these should be sited in accessible locations, certain types of accommodation that require a higher level of care may not necessarily need accessibility to local services and public transport. Sheltered housing is particularly directed at elderly residents who sometimes need the back-up services of a nearby resident warden, as distinct from constant nursing care. It will usually be provided in clusters, with appropriate communal facilities (such as a meeting room, laundry etc.) in a location with good access to local services. Although the numbers of elderly people are projected to fall in this borough there is still a substantial unmet demand for sheltered accommodation. 6.45 In 1991,17,955 households in Hammersmith and Fulham had a household head over retirement age. Although not all elderly households are on low incomes, a considerable proportion will not be able to gain access to housing suitable for their needs through the private market. In Hammersmith and Fulham only 27% of households consisting solely of pensioners are owner occupiers, 36% are local authority tenants, 15% are housing association tenants, and 23% are in private rented accommodation. In April 1993 there were over 4,500 elderly people in need of sheltered accommodation in the borough and of these 961 were on the waiting list (Housing Strategy and Investment Programme 1994/1995).

6.119 There is also a need for a wide range of specialist housing, often in the form of hostel or shared housing schemes, to provide for people with special needs. The increasing demand for this housing arises in part from the Government's policy of Care in the Community and the run-down and closure of many large psychiatric and geriatric hospitals in favour of local community based accommodation and services (proposals for this type of housing will be considered in accordance with policy HO10) and in part from the decline in the private rented sector.

6.120 The provision for special needs housing is in part provided by a variety of public sector agencies, including the council. Many housing associations are also important providers, as is the private sector. The latter is expected to provide an

Chapter 6 242 London borough of Hammersmith and Fulham: UDP Alterations

increasing role in provision of care for the elderly. Also private firms provide hostel accommodation for workers needing only short-term accommodation in London.

HO7 RESIDENTIAL DENSITY

New residential developments will be required to satisfy the council's density standards (S2.1-3) in conjunction with other environmental controls.

Residential development will be permitted only if it accords with the standards set out in development standard S2 or, in the case of higher density development: a) The design and layout of the scheme is such that it can make more efficient use of land without compromising environmental quality; and b) The scheme would not be deficient in open space provision to meet the needs of residents, and would not lead to a deficiency in open space provision for the area as a whole; and c) Existing services and facilities would have sufficient spare capacity to accommodate the increased demands that higher density development would place upon them; and d) There would be no increase in on-street parking demand; and e) In relation to the scale of the proposed development, there would be convenient existing or proposed access to and from the site by a range of transport modes including public transport, walking and cycling.

In order to meet the borough's need for more housing it is important that the best use should be made of the scarce sites suitable for housing development and where possible residential densities should be increased

Residential density is usually a measure of the number of habitable rooms per hectare (hrha) in a residential scheme. Although residential density is not usually important in itself, it does provide a good indication as to the number and type of housing that is likely to be provided. Density standards are important to ensure the efficient use of land and that environmental standards, existing levels of services and facilities are not compromised.

However, in order to meet the borough's need for more housing it is important that the best use should be made of the scarce sites suitable for housing development and where possible residential densities should be increased in appropriate locations.

The UDP standard of 173 to 247 hrha ensures that on most sites family and non- family housing can be provided with adequate internal and external space standards, sunlight and daylight and will maintain satisfactory levels of privacy between the new and existing housing.

Sufficient internal space is important to provide people with some flexibility in the use of the dwelling. External space, particularly garden space provides an area for children to play, for outdoor activities and can provide ecologically valuable areas in

Chapter 6 243 London borough of Hammersmith and Fulham: UDP Alterations

a very built up borough. Adequate internal and external space is particularly important in schemes suitable for occupation by families with children. See standards S7A and 5A and policies EN23 and HO12.”

The last two paragraphs of reasoned justification to policy HO7 that follow paragraph 6.122 be modified to read:

Off-street parking space can occupy about a quarter of the ground area of a residential site. If the amount of off-street parking provided in a scheme can be reduced, then more housing can be provided on a site. However it is important to ensure that the demand for on-street spaces does not increase and adversely affect existing residents. The demand for on-street spaces can be controlled by restricting the issue of on-street parking permits to the residents of these new housing schemes. Traffic management measures can also be promoted to improve the quality of local neighbourhoods, improve road safety and encourage sustainable modes of transport.

Therefore Wwhere new housing is built with limited off-street parking space it is important that the residents have good access to public transport and a range of other local services. Also it is important to ensure that the local road network has sufficient capacity to cater for traffic generated by a new development, particularly where the new development is large. In such cases transport improvements may be appropriate to increase accessibility to public transport and promote other sustainable modes of transport.

6.121 In order to meet the borough's need for more housing it is important that the best use should be made of the scarce sites suitable for housing development but it is also important to protect the environment, particularly back garden land, which can be ecologically valuable (policy EN29), and the residential amenity of both the development and the surrounding area.

6.121A Residential density is usually a measure of the number of habitable rooms per hectare (hrha) in a residential scheme. Although residential density is not usually important in itself, it does provide a good indication as to the number and type of housing that is likely to be provided. Density standards are important to ensure the efficient use of land and that environmental standards, existing levels of services and facilities are not compromised.

6.121B Sufficient internal space is important to provide people with some flexibility in the use of the dwelling. External space, particularly garden space provides an area for children to play, for outdoor activities and can provide ecologically valuable areas in a very built up borough. Adequate internal and external space is particularly important in schemes suitable for occupation by families with children. See standards S7A and 5A and policies EN23 and HO12.

Chapter 6 244 London borough of Hammersmith and Fulham: UDP Alterations

6.122 Although These the density ranges in standard S2 are within the density guidelines in LPAC's Strategic Advice, LPAC has revised their advice. Sustainable Residential Quality Interim Advice seeks to optimise the housing potential of sites whilst improving the environmental quality of new residential development. The approach encourages higher densities in areas around town centres and in other areas with high levels of accessibility, particularly where the amount of off-street parking space provided can be reduced. However i It may therefore be appropriate to permit higher densities than those included in the guidelines in specific locations where the new higher density housing can be built that is compatible with the scale and character of neighbouring residential properties and does not reduce the outlook or privacy of existing residents. The higher the density of the residential scheme the greater the importance of the quality of the design. It is also important in higher density developments that adequate internal and external space is provided.

HO8 RESIDENTIAL ENVIRONMENT

The council will seek improvements of the residential environment. In predominantly residential areas priority will be given to residential use, the provision of a range of local community services and creation of a safe and attractive residential environment.

Other non-residential uses such as small-scale businesses and other local services that need to be located close to the community they serve and particularly those providing local employment may be permitted if they do not replace housing and are compatible with the residential environment and are beneficial to the local community.

In considering the design and facilities within new residential schemes, and improvements to existing residential areas, the council will require the following facilities and design features:

Chapter 6 245 London borough of Hammersmith and Fulham: UDP Alterations

i) Safety and Security

A safe and secure environment including a good standard of vandal- proof lighting, and open, direct and unconcealed access ways. and may require subject to scale, nature and location of the development: ii) Community Facilities

Amenity open spaces, local shops, nursery and creche provision, day centres for the elderly and people with disabilities, public laundries, women's centres, premises to provide an alternative base for home-based, working women. Some of these uses could be accommodated in one community building.

6.123 Strategic Advice (1988) recognised the need for residential areas, particularly those in Central and Inner London to be protected from development pressures and to encourage a range of residential development in order to overcome shortages of low cost housing and to improve community services and the residential environment (Strategic Advice para. 9.10). `

6.124 The quality of the residential environment is of concern to all residents but particularly those with restricted mobility or caring responsibilities, and those such as women, children and elderly people who may spend more of their time in the area where they live. Local community services are vital to the carrying out of the caring role and, more fundamentally, to reducing the need for unpaid domestic and caring work. The residential environment may be a place where women feel insecure, fearing violence and sexual attack or harassment. The council recognises that the environment must be designed in such a way as to minimise, as far as possible, these dangers crime and disorder PPG1 para. 51 and Circular 5/94), and to accord with the council’s duty to do all it reasonably can to prevent crime and disorder (Crime and Disorder Act 1998). See policy EN10.

6.125 Local employment and service activities (e.g. plumbers, electricians and small-scale industries) are scattered throughout the residential areas of the borough. These activities should be encouraged to remain, if they are compatible with the residential environment because they provide local employment opportunities and local services.

HO9 RESIDENTIAL HOSTELS NON–SELF CONTAINED SHARED RESIDENTIAL ACCOMMODATION

1994 Policy HO9 replaced by altered text shown below

1. Development that would result in the loss of non–self contained shared residential accommodation will only be permitted if the development would be wholly for permanently available affordable housing in accordance with policy HO5.

2. Permission will be granted for the provision of non–self contained shared residential accommodation only if the proposed accommodation:

Chapter 6 246 London borough of Hammersmith and Fulham: UDP Alterations

a) would meet identified local needs for affordable housing; and b) has satisfactory layout and service provision; and c) would not have an adverse effect on the amenity of the surrounding area; and d) is in an area of high public transport accessibility and will not generate additional demands for on-street parking.

Such accommodation will be controlled to ensure that it remains available for the use permitted.

6.126 This policy applies to forms of housing not included in the C2 or C3 Use Class and which for the most part provides temporary accommodation, for both single and family households who are either homeless or who do not have access to permanent accommodation. It may include residential hostels which are now excluded from the specified classes of the 1987 Use Classes Order (4.4.94). HMOs and some bed and breakfast hotels which are mainly used for housing homeless people. It applies to hostels that are intended for occupation, normally on a medium to long-term basis by local residents, workers or students, as their only or primary residence. For the avoidance of doubt the term residential hostel this policy does not apply to short stay accommodation, primarily catering for tourists, holiday makers or overseas visitors and whose normal and/or permanent residence is elsewhere. A hostel providing tourist type accommodation primarily for visitors and probably on a short-term basis (see glossary) will be considered under policy E11.

6.127 There is a need in this borough for accommodation for small, low-income households who are homeless and who do not have access to permanent housing. Many households are small and shared accommodation may be appropriate for these households. However there are also many homeless families who also need accommodation on a temporary basis and for whom some form of self-contained accommodation may be more appropriate.

The decline in rented accommodation, especially that at the cheaper end of the market (like HMOs) has reduced the supply of low-cost accommodation. The council and housing associations are unable to provide housing for most of the non- priority homeless (that is people without dependants and who are not vulnerable because of age or physical or mental disability) because of the need to house the statutory homeless. The level of this need is indicated by the number of approaches received by the council from non-priority homeless people: during 1992/93 there were over 2,000 approaches. In addition, the Threshold Housing Centre which provides housing advice to people without dependants dealt with about 3,000 enquiries in 1992/93. Shared accommodation Residential hostels can provide accommodation not only for small households without dependants who are at risk of being homeless but also for low-paid workers, for instance nurses, hotel workers, or students.

Reason for (i)

6.128 The council wishes therefore to retain shared accommodation such as HMOs and hostels that are capable of continuing to provide residential accommodation. The hostel shared accommodation should provide a reasonable standard of accommodation that accords with or can be made to accord with DOE Circular 12/92 Houses in Multiple Occupation which is applicable to hostels and HMOs. The

Chapter 6 247 London borough of Hammersmith and Fulham: UDP Alterations

change of use or redevelopment of residential hostel shared accommodation may be permitted if the property proposal is to provide another form of temporary residential accommodation or permanently available affordable housing, as defined in policy HO5 a) and b). because These forms of housing affordable housing will also meet a housing need in this borough (paragraphs 6.40-6.42).

Reason for (ii)

6.129 Proposals for hostels/HMOs may be permitted as an exception to other policies in the Plan providing the proposed hostel is of a reasonable standard (see para. 6.128) in accordance with Circular 12/92 Houses in Multiple Occupation and can be shown to be meeting a local need for low-cost residential accommodation for people who might otherwise be homeless or for low-paid or key workers. The change of use to a residential hostel/HMO of either residential accommodation in the C3 Use Class or appropriate vacant non-residential sites and buildings outside employment zones, may be acceptable.

6.130 In determining whether a hostel/HMO use will have an adverse impact on the amenity of the surrounding area it will be necessary to consider the type and size of the hostel/HMO and the likely impact of additional traffic or car parking on the local streets and the possibility of noise and disturbance at unsocial hours. As most hostels/HMOs are likely to be occupied by people on relatively low incomes car ownership rates are also likely to be below average, therefore the need for car parking space is likely also to be less than for C3 residential development. However, it is important to consider each hostel proposal, to ensure that it does not generate unacceptable amounts of additional on-street parking. The proposed development should either provides adequate off-street car parking for its occupants and does not generate unacceptable amounts of additional on-street car parking or there should be restrictions on the ownership of cars or restrictions on the issue of on-street parking permits. Hostels This accommodation should normally be located in areas of good public transport accessibility as car ownership is likely to be low. Some hostels/HMOs may also require less amenity space than C3 residential development because most hostels will not be occupied by families with children. this accommodation will not be occupied on a permanent basis. The reduced need for car parking and amenity space is likely to mean that it is appropriate for hostels/HMOs to be developed to higher densities than C3 residential schemes, particularly where public transport accessibility is high.

6.131 As the type of hostel/HMO use may change without planning permission, it may be appropriate for there to be a Section 106 to ensure that the hostel accommodation continues to meet local needs (e.g. by requiring that there be no change in internal layouts and securing the type of occupants), and that there is no adverse impact on the local amenity and the need for car parking and access if the type of hostel use changes.

HO10 SPECIAL NEEDS HOUSING

1994 Policy HO10 replaced by altered text shown below

Chapter 6 248 London borough of Hammersmith and Fulham: UDP Alterations

1. Development that would result in the loss of special needs housing will only be permitted if the development would be wholly for permanently available affordable housing in accordance with policy HO5.

2. Permission will be granted for the provision of special needs housing only if the proposed accommodation: a) would provide long term or permanent managed accommodation to meet identified local needs, and b) would not have an adverse effect on the amenity of the surrounding area, and c) is in an area of high public transport accessibility and will not generate additional demands for on-street parking.

Such accommodation will be controlled to ensure that it remains available for the use permitted.

6.132 There should be no loss of hostels and special needs housing schemes in the C2 Use Class, that is schemes providing an element of care for people with special needs such as the recovering mentally ill or people with learning difficulties, or the frail elderly The council wishes However, an exception may be made for the provision of affordable housing. There is a need to make provision for additional hostels and special housing schemes, as part of wider Care in the Community initiatives for groups in special need. Suitable properties for such projects are frequently located in residential areas, where it is particularly important to ensure that there are no adverse impacts such as excessive traffic generation, parking and noise, upon existing residential properties.

The requirements of special needs housing schemes are likely to vary depending on the people they are catering for. The need for car parking provision or amenity space will vary and some schemes will need access for larger vehicles such as ambulances. Each special needs housing scheme should therefore be considered on its merits and where appropriate a Section 106 Agreement may be required to ensure that accommodation continues to meet a local need and that if the occupants of the hostel change there is no adverse impact on the local amenity (e.g. by requiring no change in the type of occupants and restricting the availability of on- street parking permits).

6.133 The requirements of special needs housing schemes are likely to vary depending on the people they are catering for. The need for car parking provision or amenity space will vary and some schemes will need access for larger vehicles such as ambulances. Each special needs housing scheme should therefore be considered on its merits and where appropriate a Section 106 Agreement may be required to ensure that accommodation continues to meet a local need and that if the occupants of the hostel change there is no adverse impact on the local amenity (e.g. by requiring no change in the type of occupants and restricting the availability of on- street parking permits).

HO11 TRAVELLERS

Chapter 6 249 London borough of Hammersmith and Fulham: UDP Alterations

The council recognises the need for travellers' accommodation and provides a caravan site at Westway in accordance with its duty under the Caravan Sites Act.

Any application for a travellers' caravan site in this borough will be considered in relation to the following criteria: i) the need for the provision of accommodation in the locality ii) the suitability of the site for the proposed uses iii) suitable vehicle access to the site and the satisfactory provision of parking, turning and servicing on site iv) appropriate level of, and accessibility to local services and facilities v) compatibility with the existing and planned uses in the area, particularly in terms of environmental amenity in residential areas and the need to retain Metropolitan Open Land and public open space.

6.134 This policy applies to Gypsies as defined in Section 16 of the Caravan Sites Act 1968 as "persons of nomadic habit of life whatever their race or origin". Local authorities currently have a statutory duty to provide accommodation on caravan sites for gypsies residing in or resorting to their areas should have regard to the accommodation needs of gypsies. This council together with the Royal borough of Kensington and Chelsea jointly provide a site for 20 travellers' pitches at Westway, on land between the elevated carriageways of the M41. There is a proposal to improve conditions on the Westway site in the financial year 1994/95.

6.135 In January 1994, the DOE issued a new Circular for Gypsy Sites and Planning (Circular 1/94) which provides guidance to local planning authorities on gypsy site provision. This relates to a forthcoming amendment to the Caravan Sites Act 1968 and the repeal of the statutory duty to provide a gypsy caravan site. Local planning authorities should include in their development plans appropriate policies and criteria for dealing with gypsy site provision (paragraphs. 6.63 and 6.64). This policy therefore includes criteria in relation to which a planning application for a new or a replacement Travellers' site will be considered, having regard to other policies of the Plan.

Reason for Criteria (i)

6.136 Given the itinerant lifestyles of traveller, which circular 1/94 acknowledges, Iit is difficult to estimate the need for Travellers' pitches in this borough because the number of caravans in any area tends to fluctuate and is influenced by the provision of sites in other boroughs, or the lack of provision. The Westway site has accommodated as many as 60 caravans, although at the last count in July 1993 there were 26 caravans on the site. but is currently less than that, although the number of caravans has increased from about 30 caravans between 1994 and January 1997 to 34 caravans in July 1997 to 42 in January 2000 (Half-yearly Count of Gypsy Caravans. DETR). There have been no unauthorised encampments recorded in the borough during this period.

Reason for Criteria (ii)

6.137 The suitability of a site needs to be considered in relation to the proposed function of the site. Travellers' sites can either be for settled occupation, temporary stops or transit sites or any combination of all three. The locational requirements and the facilities that are required will vary depending on the function. A site for

Chapter 6 250 London borough of Hammersmith and Fulham: UDP Alterations

settled occupation will require a location that is suitable for a residential use and would require a reasonable level of services including electricity, drinking water, washing facilities, sewage disposal and refuse collection.

6.138 A site for settled occupation may not be just for residential use, but may also be for a variety of business and storage activities, such as scrap metal dealing. If a site is to be used for such activities as well, there is likely to be a greater impact on the surrounding area.

Reason for Criteria (iii)

6.139 A Travellers' site needs good road access to allow large vehicles, both caravans and trucks to enter and leave the site safely and without undue disturbance to adjoining uses.

Reason for Criteria (iv)

6.140 Any new site for settled occupation will need to be located so that it is accessible to schools, health facilities, shops and other local services especially because many Travellers and their families live on sites for long periods.

Reason for Criteria (v)

6.141 Even a caravan site that is only residential can cause more disturbance than permanent housing because more activities take place outside and because of the movement of heavy vehicles. Where business activities and storage also take place on the site, the disturbance to neighbouring uses can be greater. Circular 1/94 suggests that the location of caravan sites outside existing settlements should be considered, but that Green Belt land should not be allocated for gypsy sites in development plans. Although there is no Green Belt land in this borough there is Metropolitan Open Land to which the same presumption against development applies (Strategic Guidance paragraph 61). In such a built-up borough as Hammersmith and Fulham land suitable for a Travellers' caravan site is very limited, and any application would need to be considered not only in relation to the above criteria but also in relation to other policies in the Plan and need for other land uses.

HO12 RESIDENTIAL AMENITY SPACE IN NEW DEVELOPMENTS

The council will resist the loss of existing residential amenity space, particularly where there will be a significant loss of garden area (Standard 6). In new residential developments, all new dwellings should have access to an area of open amenity space. New family dwellings should wherever practicable have direct access to private amenity or garden space. Where this is not possible because the dwelling is not at ground level, then there should be access to a communal open amenity space within the building's curtilage and within easy view of the dwelling. Non-family dwellings located above ground floor level should have access to a private balcony and/or to an area of communal amenity space. Supplementary Planning Guidance (SPG) Standard 6 gives guidance on the amount that should be provided in different types of development.

6.142 The borough already has a high density of development, with little space between buildings, particularly in the south of the borough, congested streets and

Chapter 6 251 London borough of Hammersmith and Fulham: UDP Alterations

deficiency of public open space. It is therefore important to ensure that existing private open amenity space is retained, and that all new residential developments have open amenity space. Private open amenity or garden space is needed not only for the enjoyment of the occupiers but also for a wide range of outdoor activities such as children's play and other leisure activities, clothes drying, repairing and cleaning equipment. It is important in a borough which already has a high density of development, congested streets and deficiency of public open space. In addition, areas of planted open space help to achieve environmental objectives. The Government document, Sustainable Development: The UK Strategy states in para. 24.23 that:

"Urban quality depends on the creation and protection of green space in cities for amenity and recreation" - "Maintaining green space, both public and private and planting trees in urban streets will raise the environmental quality of urban areas". by increasing biodiversity, helping to reduce air pollution and surface water run-off and by enabling residents to compost household waste. In order to provide for a range of activities and to maintain and increase biodiversity in the borough a minimum size of garden needs to be provided or maintained.

HO13 ENERGY EFFICIENCY

All residential development, including conversions and changes of use, should be assessed in relation to its ability to maximise energy performance

The following design elements should be considered: • Orientation and window design to capture ‘passive solar’ heat; • Flats and terraced building forms to reduce external area for heat loss; • Heavy insulation of external surfaces; • Controlled ventilation and avoidance of draughts; • High internal ‘thermal mass’ to store warmth and even out temperature fluctuations • Combined Heat and Power schemes where appropriate. • Production of renewable energy (photovoltaics of other suitable technology)

Greater energy efficiency in residential buildings will not only reduce greenhouse gas emissions but will also assist in providing affordable warmth for the occupants. Wherever possible the standards of the Building Regulations should be exceeded.

HO14 WASTE MANAGEMENT

New housing developments, including where practicable, conversions and change of use, should provide within the layout facilities that will enable householders to re-use, compost or recycle waste. This may include: • space both inside and outside the dwelling for the storage of materials for recycling; • provision, where refuse shutes are provided in multi-storey buildings, for the separate collection of recyclables.

The principles of sustainable waste management make it important that a much greater proportion of household waste is re-used, recycled or composted. In order to

Chapter 6 252 London borough of Hammersmith and Fulham: UDP Alterations

facilitate greater recovery of waste, it is essential that residential buildings have the space to segregate and store waste for recycling. In multi-storey buildings it is also important that facilities are provided to ensure that recyclables can be collected.

HO15 WATER CONSERVATION

Water efficiency measures will be encouraged in new developments and major renovation projects. These measures may include: • the collection of run-off from roofs for watering gardens; • the use of ‘grey’ (used water from baths, showers and washing machines) water recycling schemes.

There is a delicate balance between the quantity of water abstracted to meet public water supply requirements in London and the quality and ecology of the river as it passes through it. Managing growth in demand for water through water conservation measures is a key element of the Environment Agency’s Strategy for the Thames (Local Environment Agency Plan for Thames Tideway 1999). All new residential developments and major renovation projects should consider how water use can be minimised.

Chapter 6 253 London borough of Hammersmith and Fulham: UDP Alterations

Chapter 6 254 London Borough of Hammersmith and Fulham: UDP Alterations

CHAPTER 7: EMPLOYMENT

RESTATEMENT OF PART I POLICY G6: EMPLOYMENT 258

E5 258

JUSTIFICATION FOR PART 1 POLICY G6: 259

INTRODUCTION 259

ISSUES 260 General employment change 260 Impact on land-use 262 Maintaining a mix of premises 264 Location of economic activity 265 Barriers to employment 267 Tourism and visitors 268

POLICY CONTEXT 269 National and Regional Policy 269

STRATEGY 270

PART 2 EMPLOYMENT POLICIES 271 E1 EMPLOYMENT ZONES 272 E2 TOWN CENTRES 279 E3 SITES AND BUILDINGS PROVIDING EMPLOYMENT OUTSIDE EMPLOYMENT ZONES AND TOWN CENTRES 279 E3A COMBINED LIVING AND WORKING DEVELOPMENT SCHEMES 281 E4 LAND NOT IN EMPLOYMENT USE OUTSIDE EMPLOYMENT ZONES AND TOWN CENTRES 282 E5 REQUIREMENTS FOR B CLASS DEVELOPMENT PROVISION FOR SMALL BUSINESSES 282 E6 WORKPLACE NURSERY PROVISION AND TRAINING FACILITIES 284 E7 TRAINING PROVISION 284 E8 IMPROVING EMPLOYMENT AREAS 285 E9 ACCESSIBILITY TO EMPLOYMENT OPPORTUNITIES 286 E10 TOURISM 286 E11 HOTELS AND TOURIST-RELATED DEVELOPMENT 287

Chapter 7 256 London Borough of Hammersmith and Fulham: UDP Alterations

Chapter 7 257 London Borough of Hammersmith and Fulham: UDP Alterations

CHAPTER 7. EMPLOYMENT

RESTATEMENT OF PART I POLICY G6: EMPLOYMENT

The Council will seek to sustain a wide range of economic activities in the Borough, subject to satisfactory environmental conditions, and to ensure that all Borough residents have access to an adequate supply and variety of local jobs.

In particular, this will be achieved by: aa) promoting the regeneration of land and premises in a manner which enhances the diversification of the local economy and encourages business and industry to locate in or remain in the borough ; E1,TC5,E3,E3A,E5,E8,E10,E11 a) retaining in employment use land which currently provides employment provided that this is environmentally acceptable; E1, E2TC5, E3 b)c) defining employment zones for particular use by B class activities and one zone (Hythe Road) specifically for B2-B8 uses; having regard, in particular, to their accessibility by public transport.and promoting development on the old Oak common Sidings Site, primarily for employment purposes, in the context of physical, social and economic regeneration in this borough and the non-statutory Park Royal Regeneration Area; E1, Sites 40, 84 A, B c)b) encouraging larger B1 developments to locate in areas of higher public transport accessibility, in particular where such areas are in the town centres, and discouraging it elsewhere, especially in predominantly residential areas; guiding employment developments that are major generators of travel and transport demand to town centres and otherwise to locations of high public transport accessibility.] E4, E1, TC5, TN2, S1 d) requiring large B1 proposals on appropriate sites in town centres to be part of mixed-use schemes that retain and provide other facilities that are appropriate to the scale, nature and location of the scheme and contribute to the viability and vitality of the town centre, whilst preserving and enhancing the character of the area; E2, TC5, Sites 27, 36, 63a, 75, C,D,E,G. e) seeking to ensure where appropriate that new B1 developments outside town centres includes accommodation capable for occupation by small firms; the availability of a range of business accommodation, including that suitable for small business E5

Chapter 7 258 London Borough of Hammersmith and Fulham: UDP Alterations

f) seeking to ensure that, where appropriate, new developments generating employment provide facilities for training and childcare, which directly benefits local people; E6, E7, Sites (in particular) 27, 32, 36, 78 g) improving the quality and accessibility of employment areas through regeneration initiatives and other environmental and transport measures; E8, E9 h) promoting hotels and other facilities for visitors to the Borough especially in town centres subject, in particular, to a satisfactory environmental impact, and no loss of housing and to achieving local economic and social benefits; E10, E11, CS1, CS2, CS2A

JUSTIFICATION FOR PART 1 POLICY G6:

INTRODUCTION

This chapter sets out policies dealing with uses within the B class, i.e. business, industry and warehousing and with similar sui generis uses, except where they are within a town centre. Other employment generating uses are primarily dealt with by other policies in the Plan. However, reference is made, in policies E1 and E3 to non- residential uses that provide significant employment. In addition, these two policies specify how residential uses will be considered on employment sites. The chapter includes a policy for combined B class and residential use (policy E3A) and includes policies dealing with tourism and hotels.

7.1 Safeguarding and enhancing the Borough's economy is a principal priority of the Plan. This is particularly important at a time when there is an increasing national as well as local need within London to foster economic growth.to take advantage of growth opportunities within the national and international economy so that London continues to prosper as a world city. It is also important to ensure that the job opportunities are sufficient to meet the needs of the expanding residential population.

7.2 Local businesses, by providing employment and incomes for both residents and people from outside the Borough, contribute directly to the prosperity of the Borough and to London as a whole. The Council is particularly concerned that this prosperity should continue and especially that there should be a supply of jobs locally to meet the needs and aspirations of the resident workforce, both now and in the future. It is recognised however that these needs and aspirations cannot be satisfied entirely within the Borough boundaries, firstly because of environmental and traffic constraints, secondly because of competing uses for land, and thirdly because Hammersmith and Fulham is only one part of the economic structure of London. In formulating its policies the Council has taken into account these factors, and has particularly recognised that as part of West London which has experienced, and continues to experience, congestion and development pressure, its policies and proposals will have a particular effect on the economy of London and its constituent parts, especially areas of Inner London and East London.

Chapter 7 259 London Borough of Hammersmith and Fulham: UDP Alterations

7.3 The changes affecting London are summarised in paragraph 4.1 of LPAC's 1988 Strategic Advice. This states that: RPG3 which in turn has had regard to reports by GOL and LPAC including 1994 Advice. Specifically these highlight: • the increase in the domination of the service sector in London and the strengthening of some financial and business sectors; • the continued loss of the manufacturing sector; • the loss of the growth element in many activities compared to the rest of the country; • decentralisation of many activities outside London; • the increasing importance of commuting especially to the central area; • the continued imbalance between the skills of the local population and the labour market; and • the increasing importance of tourism.

"Since the 1960's London has experienced an unprecedented rate of industrial, occupational and geographical economic change. Its employment level has fallen from 4.5 million in 1966 to 3.5 million in 1984. The outflow of people, jobs and investment has left a legacy of severe economic disadvantage which is heavily concentrated in Inner and East London and parts of West London in the boroughs of Brent and Ealing".

Hammersmith and Fulham is an Inner London borough. It has shared in the change described by LPAC and faces a number of major economic and employment issues, all of which are inter-related, which threaten the borough's economy and the quality of life of its residents. LPAC's 1994 Advice emphasises the severe imbalance created throughout the 80's in London's economy and states that:

"Between 1981-1993, despite large-scale job creation in the mid-1980s (employment in London peaked at 3.57 million in 1988) employment fell from 3.56 million to below 3.1 million. London has suffered 52% of net national decline in employment since 1988. Between 1981-1989, employment in services grew by 8% though this has been eroded steadily in the last four years. Manufacturing and distribution fell by almost 50% between 1981 and 1991. Services now make up 85% of total employment while manufacturing only makes up 11%. Even if the decline in manufacturing abates, dependence on the service sector leaves London's economy vulnerable to sudden shock and less able to recover quickly."

ISSUES

General employment change

7.4 Since the 1960's there has been substantial structural change in the national economy stemming from the changing nature of economic activity itself. At the heart of these changes is the decline in manufacturing, which in Hammersmith and Fulham has been at a faster rate than for London as a whole and is anticipated to continue to the year 2000 and beyond This decline is now anticipated to have stabilised. Conversely however On the other hand the Borough has experienced higher rates of growth than for Greater London in employment terms as a whole in distribution, hotels and catering; banking, insurance and business services, transport and communication; and education, health, etc. services. ‘Real estate, renting and business activities’, ‘Wholesale and retail; repairs’, and ‘Hotels and restaurants’. This has meant that whilst the level of jobs in the Borough has remained virtually unchanged between 1981 and 1991 in recent years (showing a small increase of 0.5%), the trend has been towards the continued loss of manual jobs traditionally

Chapter 7 260 London Borough of Hammersmith and Fulham: UDP Alterations

occupied by local residents and their replacement by non-manual higher-skilled jobs in the service sector.

7.5 During the 1980’s the borough’s economy increasingly comprised smaller firms with the overall number of establishments increasing by nearly 40%. During the latter part of the 1990’s this growth in number of firms has continued with this borough being one of the highest in London for new business increase as shown by changes in V.A.T. registrations. Small firms are recognised as a growth area nationally and they provide valuable employment opportunities. Most of the increase in Hammersmith and Fulham was in establishments employing fewer than 25 people. There are also an increasing number of self-employed people working in the borough, about 13% of the economically active population. Whilst self-employment is usually carried on from home, once a business is established small premises are often required for expansion. Alongside the changing nature and size of firm, the availability of premises has not always responded to changing demand. In parallel with this change, although there are a the number of large employers in the Borough such as the BBC, the Health Authorities and the Council has declined and 38% of employment is within large establishments of 200 employees or more, and the Borough's economy has become increasingly reliant on small firms of less than 200 employees as the major manufacturing companies have relocated plant elsewhere typically outside London, and have been replaced by smaller firms. The Borough occupies a favourable position in the western corridor which has been and will continue to be attractive to a large number of companies especially office based activities seeking to decentralise from relatively expensive Central London sites whilst retaining accessibility to the motorway network and Heathrow airport. In addition it has a number of important large employers which serve to attract smaller companies because of business linkages. Some of these linkages notably in the media sector may have grown significantly in the next last few years in view of changes brought about by the Broadcasting Act 1990 and the anticipated growth in the independent sector. The Arts, Cultural and Entertainment Sector is expected to continue to play an important role in generating employment opportunities as are the retail and leisure sectors.

7.6 The total number of jobs in the Borough in 1991 6 was estimated at 93,200 78,200 of which about 13,600 were excluding self-employed people. However, it is anticipated that despite a projected London-wide increase in jobs over the next 10 years the total number of jobs in the Borough (excluding the self-employed) could decline over the next decade by approximately 10,000 (LPAC University of Reading Employment Forecasts for London 1989-2006). It is estimated that this will involve a substantial fall in male employment in the Borough, and a small but less than compensatory increase in the number of jobs filled by women. This decline in job opportunities compares with a projected increase in the economically active population of the Borough of between 3,200 - 4,600 by 2001 (1989/90 Round of LRC Demographic Projections for the London Boroughs) which will result not only from an overall increase in the population of working age but also because of increases in activity rates amongst women. If these projections are fulfilled the impact on the level of unemployment in the Borough will depend on the extent to which Borough residents obtain employment outside the Borough and will therefore be significantly affected by the availability of jobs elsewhere in London. LPAC suggest that despite the current downturn in the economy the long-term forecast is still for an increase in jobs in London. However the structural changes which this masks, including continued loss of manufacturing firms and a shift in geographical distribution, would suggest that there is a danger that unemployment among Borough residents could remain high throughout the rest of the decade. In 1991 jobs in the borough were

Chapter 7 261 London Borough of Hammersmith and Fulham: UDP Alterations

filled mainly by people travelling into the borough to work and borough residents filled only 37%. Conversely 63% of working borough residents travel outside the borough to work. This pattern of movement is typical of London as a whole and reflects the fact that Hammersmith and Fulham is just one part of a much larger economic area. Nevertheless there are substantial journey to work movements taking place which policy should aim to reduce. As a result of these commuting flows in 1991 there was a net inflow of about 16,000 people. 7.6a The number of jobs in the borough has remained fairly constant during the 90’s, growth in some sectors compensating for decline in others. The appearance of stability, therefore, masks considerable differences in the performance of sectors within the local economy and some sectors have not performed as well as could be expected when compared with the rest of Greater London. The borough’s manufacturing base now comprises only 6% of total employment compared with 8% in Greater London as a whole. The borough has also experienced considerable loss in a variety of public and community services whereas London as a whole has experienced an increase. The decline in local construction employment is much more severe than for the rest of London.

7.6b In view of the differing fortunes of economic activity in the borough, which has resulted in only a stable level of employment during the early to mid 90’s, despite substantial growth in some sectors, there is a continuing need to protect and enhance employment opportunities in the local area. This is required both to keep pace with the anticipated rise in population and in economic activity rates of the local population, and because of the continuing need to alleviate local unemployment which although much reduced in line with national trends stands above the Greater London average. The overall level of unemployment masks substantial differences within the borough with the highest rates of unemployment being experienced in the north of the borough and in wards adjoining the Royal borough of Kensington and Chelsea.

7.6c Substantial change has occurred in the decade 1981-91 regarding the nature of the jobs filled by local residents with a substantial fall in numbers employed in manual occupations, a decline from 39% of economically active residents in 1981 aged 16 and over to 26% in 1991. In contrast by 1991 the number of residents employed in Managerial, Professional and Technical occupations rose from 38% in 1981 to 47% in 1991. These changes reflect a number of forces at work in terms of the changing composition of the local population as well as the changing structure of the local economy, but result in a continued pressing need to enhance the skills of the local population so that they can better compete for the new job opportunities which are becoming available. This has the twin objective of tackling social exclusion as well as reducing travel to work flows.

Impact on land-use

7.7 The effect of the changing nature of economic activity and the decline of manufacturing has been compounded in inner city areas by the trend towards decentralisation as people and businesses have moved to suburban or out-of-town locations. This trend is anticipated to change with the policy emphasis on urban renewal. The Borough's position adjoining the Central London area and its excellent east-west road and rail linkages between the City and Heathrow has meant that when employment sites have become available they have been, and still are, under pressure to change from relatively low-value uses to uses commanding a higher site value. For a number of years this was notably residential use. particularly on riverside sites, as many public utilities and bulk handling industries declined, but

Chapter 7 262 London Borough of Hammersmith and Fulham: UDP Alterations

subsequently Office uses also squeezed out industrial and other uses particularly in the central area of the Borough where much economic activity is interspersed with residential uses. These pressures have been on both vacant land and premises, and have served to accelerate the closure and movement of firms, as well as to increase the structural imbalance in employment between east and west London.

7.8 The Council's policy throughout the 1980's was to try to control the decline of industrial uses by a policy of protecting these sites from change of use wherever possible and desirable, including the designation of employment zones where priority was given to industrial development. The changes to the Use Classes Order (UCO) 1987, and the General Development Order (GDO) 1988, which are described in detail in paras. 7.32, have however undermined this policy, and while the pressure to change to residential use has temporarily declined with the present downturn in the residential market, the change from industrial to office use continues.

7.9 The loss in Hammersmith and Fulham of industrial sites to primarily office use in the B1 use class is emphasised by the following statistics. Between January 1987 and January 1994 282,961 sq.m of B1 floorspace was completed involving the displacement of 44,500 sq.m. of industrial and warehousing floorspace. A further 232,216 sq.m. of B1 floorspace granted planning permission is under construction or not yet started which would displace at least 69,290 sq.m. of industrial and warehousing floorspace. It is anticipated that schemes completed since January 1987 will provide over 14,000 office jobs. However, these figures must be treated with caution as it is unlikely that all permissions will be implemented. There is also evidence of a high level of vacancies amongst office developments completed over the last five years (1989-94) of some 30%.

7.10 A number of problems arise from the difficulty in controlling the loss of industrial land to residential and office development for the following reasons:

1) there is an increase in the overall level of development in the Borough through the higher density of development which often results;

2) the office developments may not be providing the jobs required to match local residents' skills. In 1991 only about 37% of Borough residents worked locally and this proportion is much lower in new offices;

3) local skill shortages are likely to result, with the consequence of increased commuting from outside the Borough putting a strain on roads and public transport;

4) an intensification of environmental and traffic problems in residential areas and in other areas, for example Sands End where new development or development proposals are of a higher density;

5) displacement of industrial firms/local service activities; and

6) the market is not providing for the needs of all businesses, including the self- employed and light industrial uses in terms of size, design and rents of premises. Land use policy over the last twenty years has been orientated to resisting the pressure for non-employment uses on sites occupied by economic activity so that an appropriate level of economic activity can be retained in the borough. This policy has been, and continues to be complemented, by a number of initiatives aimed at economic development and renewal in appropriate areas. Continuation of this policy has been supported by Government Guidance, which encourages the maintenance and integration of economic activity and mixed-use areas. More recently the

Chapter 7 263 London Borough of Hammersmith and Fulham: UDP Alterations

emphasis of policy has been towards the release of sites for housing. However, it is emphasised that this should be where there is clearly no longer a need for continued employment use. The Council has participated in LPAC studies that seek to identify sites to meet housing provision targets (1998/1999 Housing Capacity Study) and also an assessment of the provision of industrial and warehousing land in the borough (1998 Survey of Industrial and Warehousing Land and premises availability) These studies confirm that in Inner West London a balance is being struck in terms of retaining sufficient land for economic activity whilst releasing some land for new housing. A further LPAC study (Business Parks in London) shows that there is cause for concern that potential growth sectors are not being accommodated within Greater London and job opportunities are being lost to the rest of the South east. Potential new sites may be required to meet this need.

Maintaining a mix of premises

7.11 The changing nature of employment has not only affected the amount of land in employment use but has also had an impact on the mix of premises available for businesses.

This falls into 3 broad types, namely: i) ageing stock with all the associated difficulties, these may be in poor condition and underused; ii) new developments built as "shed" type development and refurbished properties, these are usually well let; and iii) multi-storey modern office buildings of all sizes where shortages are anticipated to develop both in central Hammersmith and Fulham

7.12 The first category represents a significant proportion of the stock of available premises for business industrial and warehousing firms in the Borough. It is often not suited for modern operations, and indeed evidence from the Council's Industrial and Commercial Survey, 1986 showed that about one-fifth of all firms occupied premises they considered unsuitable. It is essential to the economic vitality of the Borough that this stock of older premises is updated and that it continues to provide accommodation for industrial and warehousing uses as well as for studio and office purposes. A variety of business premises, in a mix of sizes and of a good standard, is also necessary to meet the needs of all those firms that may wish to relocate in the Borough. Of particular importance is the need to maintain a range of size of premises to meet known the demand for small units, which has been reported to the Council in recent surveys from consultants.[The council is aware through its own management of small estates, its contact with West London Inward and through studies of take-up of small self-contained premises in the borough that there is a need for further good quality, self-contained, small premises at reasonable prices, primarily for B1, and of a size ranging from 46 – 465 sq. m.(500 – 5000 sq. ft.). This is the case for all types of B1 use including light industrial, studios and offices. Most modern small unit developments in the borough are well let and many have long waiting lists. The Government’s overall aim as stated in PPG4 is to encourage economic development compatible with environmental objectives. The provision of premises for small businesses, which might not otherwise be provided, is an essential element of this overall strategy (see PPG4 paragraph 4 and 5.) since evidence from recent survey work indicates that there is underprovision for light

Chapter 7 264 London Borough of Hammersmith and Fulham: UDP Alterations

industrial premises in a range of unit sizes below 914 sq.m. (3,000 sq.ft.) and for start-up units of less than 305 sq.m. (1,000 sq.ft.) both for industrial and office use.

7.13 The second category of premises stems particularly from the 1980s when the Council actively encouraged new industrial development in the employment zones. A total of 18 new industrial estates totalling 94,490 sq.m. in 279 units were completed along with schemes providing 182 small units in converted buildings in these years. Since the changes to the UCO and the GDO referred to in para. 7.8 there is evidence that some recently built workshop developments are changing to office use through permitted development, but nonetheless still remain an important part of the stock of employment premises. Since 1987 most new development has been as business centres. Analysis of the occupants of these new B1 developments intended for a "mix of uses" indicates that the majority of users could be classified as an office rather than industrial use.

7.14 The third category of premises results from Hammersmith and Fulham having grown in importance as a major location for offices over the last two decades. Over half a million sq.m. of office floorspace has been added to the stock since 1973, mainly in the central area of the borough, and further major development schemes are in progress. Since 1973 about 501,600 sq.m. of office floorspace has been built particularly in the central area of the Borough, a further 230 sq.m. is under construction and almost 232,000 sq.m. is awaiting development in 58 approved schemes (January 1994). Between 1987 and 1991 Business Use permissions accelerated to the extent that there could be a substantial increase in office space in the Borough in the next few years if all permissions are implemented. This situation is repeated for London as a whole and LPAC state in their 1990 Annual Review that:

"The overall potential supply for office floorspace continues to appear more than sufficient to meet likely requirements in the short to medium term".

The potential excess of office supply over demand means that many office buildings in the Borough could remain empty or difficult to let, while other buildings and land will be blighted by the hope value of an office development. In 1992 there was estimated to be about a 20% vacancy rate in all offices in the Borough. On the positive side, however, LPAC state that the over-supply of offices:

"may deflate rents and so reduce pressures on firms to leave London" and "should also reduce pressures which have hitherto led to the substantial loss of industrial uses to offices in some areas". It is now widely reported that Hammersmith has become established as a major office location favoured by firms seeking to decentralise from Central London. Major international companies are now located here and take-up of all available space is high. In 1999 extremely low vacancy rates in Hammersmith and Fulham were reported by various agents and shortages of space envisaged. The development pipeline at January 99 stood at 98,811 sq. m. with the majority of this in further phases of Hammersmith Embankment and Centre West at Hammersmith Broadway.

Location of economic activity

7.15 The location of employment is important because of a variety of issues linked to the environment and accessibility. Within the Borough, economic activities are located in three distinct areas, namely:

Chapter 7 265 London Borough of Hammersmith and Fulham: UDP Alterations

(i) areas traditionally occupied by industrial and related uses and excluding other uses;

(ii) mixed areas where employment exists with residential and other uses; and

(iii) town centres.

7.16 The first areas consist entirely of property in non- residential uses where the infrastructure, albeit sometimes unsatisfactory, exists primarily to serve a range of B Class and related activities. In general, industrial and warehousing businesses can operate in these areas without detriment to their neighbours because all carry out similar activities, but access to and from the areas is often through non-employment areas and can impact upon the environment of these parts of the Borough. Some of the areas are in need of physical improvement due to ageing buildings, poor facilities and inadequate access. Some of these areas, especially those on the riverside, have contracted substantially in recent years due to the introduction of other uses and with the release of some land for housing.

7.17 The mixed areas are characterised by backland industry and ad hoc employment sites scattered amongst residential areas. In most cases the uses are small-scale activities and coexist harmoniously with residential uses, but occasionally bad neighbours do occur which detract from the quality of life. When sites become available for development there is the increasing risk of more intensive uses, including increased traffic. These areas are significant providers of employment in the borough, equally as important as town centres and the larger employment areas.

7.18 Town centres have traditionally accommodated office uses. Their urban form and the transport infrastructure is usually more suitable than many other areas for more intensive developments. However suitable sites are becoming fewer and there is increasing emphasis on the need to preserve and enhance the townscape of the town centres which would prevent further significant office use. Pressures exist are growing on sites outside town centres where land values are lower but facilities and accessibility by public transport are generally poorer. These pressures need to be resisted and wherever possible demand should be accommodated for in town centres.

(i) Environmental considerations

7.19 The recent changes in the nature of economic activity and the impact of the Use Classes Order are affecting the traditional location of types of economic activity within the Borough and having a consequent impact on the environment. This is most clearly seen in respect of B1 development where certain types of business involve development of a very different type to traditional industrial and related uses. This development often consists of a much greater scale of activity with a greater density of development, traffic generation and car parking often more associated with office development. Development of this nature unless of an appropriate scale can create environmental disbenefit to areas which do not have the appropriate infrastructure and can be particularly intrusive in residential areas. Whilst changes in the nature of economic activity must be accommodated, to ensure continued economic prosperity, there is an urgent need to ensure that purpose-built office floorspace is located only in areas of good public transport accessibility and that B Class developments elsewhere are of a scale and nature appropriate to the level of public transport accessibility. In this way, development can be more environmentally sustainable largely by reducing the overall need for private car use for journeys to work or visitors to companies.

Chapter 7 266 London Borough of Hammersmith and Fulham: UDP Alterations

(ii) Accessibility

7.20 The location of employment is also important because of the need for jobs to be accessible to workers. Some employment zones are in areas of low public transport accessibility and are more difficult to get to without private transport. There is a need to improve accessibility, for both Borough and non-Borough workers, and to improve the facilities provided in these areas. The town centres on the other hand are highly accessible and have developed a range of facilities which cater for the needs of workers (see Chapter 3 9a Town Centres). There is still scope to improve these facilities, for example by the provision of workplace nurseries, but nonetheless the town centres provide and will continue to provide a valuable source of employment. The mixed areas falling outside the employment zones and town centres contain much of the Borough's economic activity. These areas provide substantial employment opportunities for local people, and have the particular advantage of offering job opportunities for the less mobile as well as providing valuable local services and facilities.

Barriers to employment

7.21 Despite the halt in the decline in the number of jobs in the Borough, the change in the composition of job opportunities and the mismatch of the skills of many local residents for these jobs means that levels of unemployment in the Borough remain comparatively high (6.7% Sept.’99) and are expected to remain high. They are consistently higher than both the Greater London (6.0% Sept. ’99) and national average (6.0% May-July ’99). Furthermore the impact of unemployment is uneven throughout the Borough, with some wards experiencing much greater levels of unemployment comparable with the worst areas of Inner London (for example White City and Coningham ward at 14.1% Sept. ’99). This impacts particularly on areas of poor housing and combines to cause considerable deprivation and social exclusion in certain parts of the Borough.

7.22 Another disturbing feature of unemployment in the Borough is the incidence of long-term unemployment. Nearly a half Over 40% of all men claiming benefit have done so for over a year and the proportion of long-term unemployment has increased decreased at a greater slower rate than total unemployment. The highest number of unemployed people who have been unemployed for more than one year occurs in the 25-34 44 age group. About one quarter fifth of all unemployed people aged over 18 have been out of work for more than 2 years.

7.23 The lack of training provision in the Borough which is particularly affected by the decline in large firms able to provide "in-house" training is one reason why local people have relatively poor accessibility to local jobs. Another factor is the shortage of childcare, which will become increasingly important in meeting the needs of the increased numbers of women expected in the labour market. The most disadvantaged groups include black and ethnic minorities and people with disabilities.

(i) Black and Ethnic Minority Population

7.24 In a study of the London Labour Market carried out by the Department of Employment, unemployment was found to be twice as high amongst black people compared with white people with similar qualifications. A survey of Borough residents undertaken in 1989 has confirmed a high incidence of unemployment

Chapter 7 267 London Borough of Hammersmith and Fulham: UDP Alterations

amongst black people. The most striking feature of this survey was the much higher proportion of black unemployed Borough residents who were previously employed within the Borough reflecting a greater dependence on local job opportunities. The 1991 Census confirmed this study showing the unemployment rate amongst ethnic groups other than the 'White' group was 22% compared to an overall unemployment rate of 13%.

(ii) Women

7.25 Because the unemployment statistics include only benefit claimants, it is likely that a significant proportion of women who wish to work are not included. The Council's survey of the skills and training needs of Borough residents undertaken in 1989 estimates that at least one-third of the Borough's unemployed women are excluded from the official statistics. Evidence from national studies indicates that many more women would enter the labour market if satisfactory and affordable childcare were available. Within the Borough there are an estimated 4,400 children under 5 and only about 1,000 childcare places. If barriers to women working were overcome many more of the Borough's women would be able to take advantage of the increased non- manual job opportunities thus increasing incomes and economic activity within the Borough. The Council's survey of Borough residents in 1989 indicated that one of the main reasons for women working part-time rather than full- time was caring responsibilities, principally childcare.

(iii) People with disabilities

7.26 Within the local area unemployment is considerably higher amongst people with disabilities (24% of people with disabilities are unemployed 1991 Census) and there is a much higher incidence of long term unemployment reflecting considerable barriers to employment for this group. People within this group are often disadvantaged by the fact that the physical accessibility of many buildings is very difficult or impossible for them. However, there is also evidence of discrimination against people with disabilities at the job interview stage.

Tourism and visitors

7.27 Government Guidance LPAC notes in RPG3 Strategic Advice (1988) that:

"Tourism is one of London's major industries and employers, as well as being of benefit to the country's balance of payments". “Tourism is one of London’s growth sectors and it will be vital to the future success of the capital’s economy that opportunities are embraced.”

Hammersmith and Fulham is not within the heart of the "tourist city" but nonetheless has a wide range of attractions including sporting facilities (e.g. three football league clubs who between them attract approximately 750,000 spectators per season); cultural entertainment facilities (e.g. three theatres, the BBC TV complex, Labatt's Apollo and Le Palais); heritage attractions (e.g. Fulham Palace and Bishops Park); exhibition facilities (e.g. Olympia, and Earls Court, partly in this Borough, which attract approximately 4.75 million visitors per year); conference facilities; and over 40 hotels (albeit most of them fairly limited in size and the majority of bedspaces for tourists and business visitors being provided in two 3 star hotels). Most of these hotels are fairly modest in size, however, there has been a considerable expansion in the last few years due to several larger hotels being granted permission. These

Chapter 7 268 London Borough of Hammersmith and Fulham: UDP Alterations

later permissions (since 1996) could increase the number of hotel rooms available in the borough by over 1000.

7.28 These facilities are important elements in the Borough's physical structure which help distinguish it from other parts of London. They are also integral parts of both the local economy, either providing or having the potential to provide jobs and training for the local workforce, and the Borough's community services provision, being available to residents as well as visitors and tourists. However, as well as providing benefits there can be disadvantages. These are particularly associated with the bigger attractions and can include traffic, parking and access problems; overcrowding on the public transport system; and environmental problems such as litter, noise and disturbance. Encouragement of further tourism and tourist-related facilities must therefore be weighed against these factors which can have an important bearing on the quality of life of the local community. In addition, in such a heavily built-up area as Hammersmith and Fulham proposals will always need to be considered carefully against the needs of competing uses, in particular residential.

POLICY CONTEXT

National and Regional Policy

1994 paras 7.29-7.39 replaced by altered text shown below

7.39a Planning Policy Guidance Note 4 Industrial and Commercial Development and Small firms (1992) is the latest Government Guidance specifically directed to this topic area and its general direction is still considered applicable. This includes the need to encourage economic development which is compatible with environmental objectives; an emphasis on small firms and the retention of mixed use areas; the need to channel particular types of development into particular areas and to protect these areas from incompatible uses.

7.39b RPG3 builds upon and carries forward PPG4. It emphasises the need for continual assessment to be carried out and adequate provision made for the range of economic activity that needs to be located in London. This includes making provision for specified land uses as appropriate. Encouragement is given for the further development of policies to ensure that jobs and homes are accessible to each other and for higher trip generating activities to be concentrated in areas served by energy efficient transport. It distinguishes between industrial and warehousing and office uses and the need to make a range of differing space available. Offices are encouraged to be located in accessible locations and policies should aim to allow for an assessment of the potential for and desirability of office use. Boroughs are also asked to seek the furtherance of industry and manufacturing and have regard to the areas and sites identified by LPAC for these purposes. This includes safeguarding important sites and areas for specified uses where this can be clearly justified. In doing this authorities should have regard to the opportunities given by sites for freight handling by water and rail links. It also allows for restrictions to be placed on the on the B1 use class where this is justified.

7.39c Most recent Guidance on housing (PPG3) seeks the release of vacant and underused “brownfield” sites for housing purposes. However, it is specified that land should not be released without a clear assessment of the value of retaining that land in employment use.

Chapter 7 269 London Borough of Hammersmith and Fulham: UDP Alterations

7.39d RPG3B/9B provides specific guidance for the River Thames. With regard to freight transport it requires local planning authorities to have regard to the maintenance of specified wharves in formulating development plans. These are specified in separate directions and include two working wharves and one vacant wharf in Hammersmith and Fulham. Guidance also requires that regard be taken of these directions in determining appropriate land uses for adjacent sites or land opposite to provide certainty for investment

7.39e PPG21 provides guidance on tourism, recognising its contribution to economic activity, and encouraging its sustainable development. RPG3 encourages boroughs to allow for hotel development especially where a location is accessible and it would contribute to the regeneration of an area and where it respects neighbouring residential communities. It particularly identifies town centres throughout London as being suitable locations for additional hotels.

7.39f The current focus of Government regeneration policy is to identify some of the most deprived areas and to seek a programme of regeneration measures for that area based on a partnership approach. Three such areas are designated in Hammersmith and Fulham. The most recent “Bridging the Divides” seeks a comprehensive social and economic programme covering the northern and eastern wards in the borough from College Park to Sands End.

STRATEGY

7.40 Policy guidance is united in making it clear that industrial and commercial development is vital to the expansion of the economy and employment at a national, regional, London-wide and local level. The Council particularly supports these aims but feels that PPG4 and national legislation needs to be interpreted at the borough level to take into account local economic and employment conditions. Thus in Hammersmith and Fulham, which is subject to development pressure for all uses, a balance between competing land uses needs to be struck.has been subject to pressure for office development, and in particular pressure for low land-value employment uses to change to office use, the Council takes the view that the Use Classes Order has facilitated the development of a rapid imbalance in the Borough's economic structure and contributes to continuing high levels of unemployment by enabling the displacement of manual job opportunities. In addition the Council considers that the structure of the Borough and the environmental and traffic issues it faces also justifies local interpretation of national policy, and would point towards Strategic Guidance for support when it states that

"it is important to foster economic growth and development while taking careful account of the impact on the environment and on transport". “The Government wishes to encourage economic development that is compatible with environmental objectives and which leads to a more effective use of land.”

7.41 The need for a balanced, sustainable local economy is developed in the Council’s strategy which involves:The concern over the 1987 Use Classes Order and the 1988 General Development Order is also expressed by LPAC who note that not only are there implications for floorspace levels but there are also implications on the level, type and distribution of employment and on amenity, design and transportation. This view is supported by the Council and is developed in its strategy which involves:

Chapter 7 270 London Borough of Hammersmith and Fulham: UDP Alterations

1) Protecting employment-generating sites to ensure that adequate provision is made for economic activity within the Borough, including designation of: a) employment zones for a range of employment generating uses, including (in accordance with the provisions of Strategic Guidance) one zone for general industry, warehousing and related uses and another where a preference is for B1(b) and B1(c) uses; b) town centres for office use and other appropriate uses; and c) retention of sites in residential areas for low intensity employment uses.

2) Endeavouring to ensure that economic activity is compatible with the promotion of a better sustainable environment by controlling the nature and scale of business development to a level appropriate to the area and through reducing the need to travel, and encouraging development in areas that can be served by more energy efficient modes of transport - such as rail, water and public transport services. Residential areas will be protected from large-scale development inappropriate to the neighbourhood.

3) Seeking to control new development so that it offers accommodation suitable for a variety of different sizes of firm which will in turn help provide a range of job opportunities available and suitable for local residents. Particular provision will be sought for firms starting up and small and growing businesses in accordance with Strategic Guidance.

4) Endeavouring within the powers that it has available to remove barriers to employment by seeking, in conjunction with new development, training provision, improved childcare and improved accessibility to employment opportunities for all sections of the community but especially those affected by social exclusion. , training provision and improved childcare.

5) Promoting the improvement and regeneration of the employment areas so that they continue to offer a satisfactory location for economic activity within London; having regard, in particular, to the inclusion of the Hythe Road area and the Old Oak Common Sidings opportunity site in the Park Royal Regeneration area.

6) Encouraging the development of facilities for tourists subject to satisfactory environmental impact and no loss of housing.

7.42 In pursuance of this strategy the Council will have due regard to the Borough's role within the London economy and the need to encourage economic development and enhance London’s world city status. foster economic growth in London in conformity with Strategic Guidance. It will in line with Strategic objectives seek to monitor and control any excessive development of office activities within the Borough (and West London) in consultation with other Boroughs.

PART 2 EMPLOYMENT POLICIES

In accordance with the 1987 Use Classes Order (as amended by the Town and Country Planning (Use Classes) (Amendment) Order 1995).

B1 is Business Uses including offices, research and development, studios, laboratories, high tech., and light industrial

Chapter 7 271 London Borough of Hammersmith and Fulham: UDP Alterations

B1(a) is offices other than financial and professional services where the services are provided principally for visiting members of the public B1(b) is use for research and development of products or processes B1(c) is use for any industrial process which can be carried out in any residential area without detriment to the amenity of that area by reason of noise, vibration, smell, fumes, smoke, soot, ash, dust or grit. B2 is General Industrial B3 is Special Industrial Group A B8 is Storage or Distribution

E1 EMPLOYMENT ZONES

The Council has designated the following areas, as defined on the Proposals Map, as employment zones where the priority will be to sustain a range of employment-generating uses normally within the B Class, and to enable existing firms to expand. 1. Development for employment purposes (Use Class B) will be permitted within the following employment zones identified in the Proposals Map:

(i) Wood Lane and Freston Road area Zone (I) (ii) Richford Street/Shepherd's Bush Road Zone (ii) (iii) Fulham Reach Zone (iii) (iv) Kensington Village and Lillie Bridge Depot Zone (iv) (v) Seagrave Road/Rickett Street area Zone (v) (vi) Carnwath Road Zone (vi) (vii) Putney Bridge Zone (vii) (viii) Hammersmith Road/Olympia Zone (viii) (ix) Townmead Road/Imperial Road (Sands End) Zone (ix) (x) Hythe Road Zone (x)

provided that:

A) Loss of land from B Class and similar use will normally not be permitted unless specified in the policies set out below. In Zone (x) - any development in excess of 500sq. m. should be primarily for B1c), B2 and B8 and similar sui generis uses, including provision of facilities to reduce, re-use, or recycle/compost locally produced waste.

B) In all other zones - proposals do not include more than 2,500 sq. m. of class B1(a) offices other than where no town centre or edge-of-centre site is available and suitable, and in such cases

(i) there is a demonstrable need for office development on the scale and in the location proposed, and

(ii) the proposed site is accessible by a satisfactory choice of means of transport, and

(iii) except in zones (vii) (viii) and the Kensington Village part of zone (iv) - the office proposals would be part of a mixed development that includes Class B1 (a), (b) and (c) uses in a range of unit sizes.

Chapter 7 272 London Borough of Hammersmith and Fulham: UDP Alterations

C)In zones (i), (iv),(v),(viii),(ix) and (x) - development will be expected to make a positive contribution to the wider objectives of the regeneration initiatives covered by the Hammersmith and Fulham neighbourhood renewal strategy and single regeneration budget programmes.

D)a) Zones (i)-(viii ix), are allocated for B1-B8 uses subject to compliance with policies E5-7 and any site specific policies in Chapter 10. B8 uses are unlikely to be acceptable in zones (ii) and (iv) on traffic grounds. In zones (vi) and (ix) - proposals would not prejudice the use of safeguarded wharves for the transhipment of freight, including waste and aggregates, and for related activities. b) zones (iii, vi and ix) are allocated as in a) above but on sites abutting the river the Council will where appropriate expect 25% of the gross site area to be developed for housing riverside sites are particularly appropriate for B1-B8 uses which make commercial use of the river. c) Zone (ix) is allocated as in a) and b) above but is subject to detailed site policies d) Zone (x) is allocated primarily for B2-B8 uses. New development must be designed to meet the needs of these uses. e) In Zones (ix) and (x), the Council will seek the retention of existing facilities used by yard based industries and their replacement if redevelopment takes place, and seek the provision of additional such facilities at Old Oak Sidings (Site 40) f) Proposals for major new shopping development will be considered in accordance with SH10, and subject to that policy , may be acceptable in an employment zone, if they: i) would not lead to a scarcity of land available to meet the potential demand for the b Class uses appropriate to that zone, in accordance with policy E1 a) - e); and ii) would produce a satisfactory level of employment. g) Small A Class uses will be acceptable if their primary purpose is to serve the employment zones and if they will not have a serious adverse effect on existing nearby shopping provision (see Chapter 9). h) Other uses generating significant employment may be acceptable subject to environment and traffic considerations and other policies of the Plan provided the principal use of the employment zone remains B1-B8. Employment-related uses such as training and childcare will be encouraged.

2. Non Class B uses will only be permitted in employment zones on the following basis:

(i) the proposal is for Class A uses of not more than 500 sq m, which are needed to serve the employment zones; or

Chapter 7 273 London Borough of Hammersmith and Fulham: UDP Alterations

(ii) the proposal is for other non-residential uses (including proposals for Class A1 uses over 500 sq.m.) that provide employment and which are not major generators of travel and transport demand, provided that the use would complement the functioning of the employment zone, there is no demonstrable need for the site or building for Class B purposes, and it would have no adverse impact effect on the vitality and viability of existing shopping provision in the area or prejudice the retail strategy of the plan. i) All development proposals will have regard to policies E5-7, relevant standards. 7.43 In view of the need to retain a variety of job opportunities and promote economic activity within the Borough, the Council considers that designation of areas and sites where employment activities have priority over competing land uses is essential to enable firms to have confidence in the future, to avoid displacement due to incompatibility with other land users and to provide space for expansion.This designation serves to ameliorate economic pressures and enables firms to have confidence in the future. It protects uniquely suitable sites as well as reducing the risk of displacement due to incompatibility with other land users. The ten Employment Zones cover about 10% of the Borough's land area (see Fig. 7.1). The areas designated include the main larger concentrations of employment economic activity within the Borough excluding town centres and are considered necessary to meet current and anticipated levels of demand to maintain the borough’s economic and employment role in targeted growth sectors. The areas are allocated for B class activities (excluding major B1(a)) and similar uses. ("Similar use" refers to a comparable employment generating use not within any Use Class.) Residential development[including live/work is considered inappropriate in these areas[for reasons of incompatibility and because it would reduce the development potential for B Class use. The zones which should be retained as areas where employment uses have priority. Major office uses, because of the higher numbers of workers which they generate compared to other B Class uses, will be restricted to less than 2,500 sq. m. in most of the employment zones (see para. 7.44). Certain other employment related uses may be permitted. and, on appropriate sites adjoining the river, 25% of the site should be developed for housing. [Other non-residential uses that generate significant employment will be considered only if there is no identified demand from B Class uses and provided that the location of this proposed use within the employment zone would be compatible with the other policies of the Plan. In these circumstances particular regard will be had to transportation and town centre policies. An exception to this will be where a small retail use is provided which would be complementary to the functioning of the employment zone. The alternative use should be compatible with and complementary to the other uses within the employment zone. In order to assess the need for sites and buildings the council will carry out its own monitoring of land and premises availability but would also look to any strategic monitoring which is undertaken for London as a whole. In this respect it is important to take a longer-term view of the need for the retention of sites. Recent changes affecting major land holdings in the area, together with the identification of the White City area as an Opportunity Area within the draft London Plan, mean that the council intend to prepare, at the earliest opportunity, a planning framework for the Wood Lane area. This will examine the scope for inclusion of other uses within the employment zone (such as leisure and affordable housing) in addition to employment activities.

7.43a Within the Wood Lane employment zone major new development schemes should reflect the higher standard of business use already in much of this zone. Development should include B1(b) and (c) uses in line with RPG3 which carries

Chapter 7 274 London Borough of Hammersmith and Fulham: UDP Alterations

forward LPAC’s designation of the area as a Strategic Employment area “Industrial Business Park”. However, the area has good accessibility to the road network and is considered suitable for other, non-office, B Class uses including B8 as well as the retention and expansion of B2 uses. The zone also contains an area of small industrial and warehousing units that provide a valuable contribution to the range of employment premises in the borough. The zone falls within the White City Regeneration Partnership area which is a seven-year programme for regeneration of the area due to be completed in 2004. The programme aims to support inward investment through environmental improvements, support for local business development and also provides for routes into employment for local residents. Major development will be expected to meet these wider objectives.

7.46 Riverside Employment Zones - The inclusion of 25% of the gross site area as residential within appropriate sites abutting the Riverside will provide a variety of townscape, enhancing the attractiveness of the views of the Riverside, and in particular the riverside walk, and riverside open spaces. The residential element can be designed to provide overseeing of the riverside walk and open spaces, and also, through avoiding the tendency to become dead areas during evenings and weekends, improve personal security for users. It may also help to reduce peak hour traffic flows and assist in meeting local housing need. The acceptability of 25% residential uses relates to the unique circumstances pertaining to the riverside, and will not be acceptable within other employment zones. In riverside employment zones vi) and ix) particular encouragement will be given to activities which are capable of using the river commercially. This would assist the overall strategy of reducing road traffic and its adverse environmental impact, whilst at the same time promoting economic activity (see policy TN31 28). Three wharves have been identified on the Proposals Map for the retention of the transhipment of freight, including waste and aggregates, and freight related activities. Two wharves Swedish and RMC Fulham are still in active use, and should these uses cease the Council would wish to see re-occupation by a new user for the transhipment of freight and freight related activities (see policy for Site A) Hurlingham Wharf is vacant and the site has been cleared. However, the Council takes the view that an alternative wharf user should be sought (see policy for Site B). The Council will seek to ensure that development in the vicinity of current or potential wharves avoids uses which are incompatible with cargo handling operations and takes into account the need to minimise any conflict of use and disturbance which might jeopardise the wharf’s future use as a cargo-handling site. .(See site policies A and B). Working wharves can have an adverse impact on neighbouring land uses. Therefore, where development is proposed on adjoining sites within these zones protection may need to be provided on this land rather than on the wharf itself. This could take the form of buffer zones, landscaping or sight and sound barriers.

7.43 (part)46a In view of the special nature of the Townmead Road/Imperial Road employment zone a greater mix of uses is considered acceptable on certain riverside sites (Site 32). The Imperial wharf scheme is under construction for a mixed use scheme including] new housing and open space as well as providing employment uses. . Site 47 has been retained as appropriate for employment use including environmentally acceptable open storage uses, should phases 2 and 3 of this development not proceed. There is anticipated to be potential demand from B Class uses for all available sites within the south Fulham area and it is considered necessary to oppose further loss of sites to housing. This zone contains two wharves, identified in Strategic Planning Guidance for the Thames, and subject to direction from the Secretary of State, which require the Council to have regard to

Chapter 7 275 London Borough of Hammersmith and Fulham: UDP Alterations

their maintenance as working wharves. There is anticipated to become a shortage of satisfactory wharf sites as demand increases over the next decade. Both these wharves are actively used and their continued security contributes to the Council’s overall objective of road traffic reduction by utilising the river for freight movement. The Council has consequently designated these wharves for the transhipment of freight and freight related activities in compliance with this objective. It has further designated these sites and the adjoining sites Albert Wharf and Fulham Wharf as a riverside industry area where the priority is to encourage economic activity that will be compatible with the industrial nature of the wharf uses. Fulham wharf offers the potential for consolidation of this part of the employment zone by redevelopment or refurbishment for a range of economic activities within the B Class. The Council considers any residential use in this part of the zone inappropriate for reasons of incompatibility and in the interest of retaining a satisfactory level of economic activity in the area.

7.47 Hythe Road Employment Zone - The Council's Strategy for Employment and Economic Development places great emphasis on the need to retain industrial land and buildings. With the present above average levels of unemployment there is a continuing need for the retention and creation of new jobs particularly unskilled and semi- skilled manual jobs for those whose employment prospects are worst. The ability of other land uses to outbid industrial users, particularly existing firms, for sites would therefore result in a continuing loss of firms and jobs unless land is retained for industry. There is projected to be a continuing need for industrial and warehousing floorspace in London and although some managed decline may be appropriate in some areas there is a particular need to retain existing provision on appropriately located sites in this sector of London. Hythe Road is the last remaining large concentration of industrial employment in the Borough. The Council would not wish to see any significant B1 use in this zone which might jeopardise the industrial nature of the area. It considers that sufficient opportunities for B1 use are available elsewhere in the Borough, and in London as a whole. Accordingly the Council will ensure that all development is designed to meet the requirements of general industrial and warehousing users. This designation is in line with PPG4 1992 (see UDP para. 7.29 iii 39a) which indicates that planning authorities can channel particular types of business uses into particular locations where there is a need. This is supported in RPG3 Strategic Guidance for London para. 3.17 which refers to LPAC’s Strategic Employment Sites and the designation of this area as part of the wider Preferred Industrial Location covering part of Park Royal. The Council is concerned at the growth of A Class use (car sales) in association with B2 use. These uses will be monitored and further permissions may not be forthcoming to preserve the area for primarily B2 use. The zone also offers the potential for the greater use of the canal and rail links that exist for freight movement. Developments proposing the greater use of these sustainable transport methods will be encouraged (see TN28).Two potential development sites, Old Oak Common Sidings and Old Oak Sidings, are well situated for greater use of the canal/rail links which exist in the area.. The employment zone is within the Park Royal Single Regeneration Budget Area for which a regeneration initiative is being pursued by the Park Royal Partnership of which the Council is a member. which also covers part of the London Boroughs of Brent and Ealing. The aim of this SRB initiative is to encourage inward investment, business support and infrastructure improvements and is complementary to the land use objectives for the area.

7.44 B1/B2/B3 development - The employment zones with the exception of zones (vii) and (viii) have been designated in order to retain concentrations of land for a range of employment uses. They are generally of lower accessibility and without major public transport improvements are not appropriate for substantial office

Chapter 7 276 London Borough of Hammersmith and Fulham: UDP Alterations

use. This is better located in town centres which have good public transport accessibility and where there is the supporting infrastructure for the increased number of employees office development generates. Accordingly the retention and the provision of replacement accommodation suitable for a range of employment generating uses within the B1, B2 and B8 category will be given priority. Office uses over 2,500 sq. m. will be permitted only where it is provided as part of development for a mix of uses and subject to it being demonstrated that there is no town centre, or edge of town centre site available and suitable; there is a demonstrable need for the office accommodation proposed; and that the anticipated level of employment can be satisfactorily accommodated on the site having regard to the availability of a range of public transport services. The consideration of the availability of suitable sites will include all the borough’s town centres. In appropriate cases regard should be had to availability in adjoining borough’s town centres. In zones (vii) and (viii) [and in the Kensington Village part of zone (iv),] office development above this level may be permitted without the requirement to be part of a development for a mix of B1 uses, subject to compliance with the other criteria and with plot ratio standard S1.1, in view of the different nature of these zones. Where an application is made for expansion by an existing office occupier within the employment zones, the requirements of policy E1 will still apply. However, the council will give special consideration to the individual circumstances of existing businesses. The 1989 Borough Local Plan allocated Employment Zones as areas where priority will be given to industrial development. The Business Class described in para. 7.32 has restricted the extent of planning control over light industrial and studio/office uses. However, the Council does not wish to see these areas developed for significant office use. It would prefer to see a range of different types of economic activity in these areas offering a variety of job opportunities appropriate to the skills of local residents. The Council is concerned that: i) insufficient lower skilled and manual job opportunities are available within new B1 development. ii) a significant number of office jobs should not be created in areas of poor public transport accessibility. iii) insufficient provision is made for industrial activities. If during the lifetime of the Plan legislative changes are made which enable the Council to distinguish between light industry and office use the Council will consider alterations to the Plan concerning the proportion of floorspace which may be permitted for office use.

7.45 Warehousing - The Council recognises the demand for warehousing and distribution in Inner London, and accepts that Class B8 uses should be located within the Employment Zones. Small and medium-sized warehousing, storage and distribution developments will generally provide job densities similar to light industrial (including unskilled and semi-skilled jobs needed by the Borough's unemployed and part-time jobs that are often needed by women with young children). The Council will encourage small and medium-sized warehouses, subject to the level of traffic anticipated and its impact on nearby users and the local road network. the type and number of jobs created by the development and will aim for an average density of at least 100-125 jobs per hectare. Large automated warehouses will therefore be opposed. On account of the level of traffic generation, new warehousing will be restricted in those parts of employment zones where there would be a particular impact on adjacent residential areas, and will be most acceptable on sites with better access to the primary road systems. Zones (ii) and (iv) are unlikely to be suitable for larger warehousing use for these reasons.

Chapter 7 277 London Borough of Hammersmith and Fulham: UDP Alterations

7.48 Yard Based Industry - There is a need to protect the facility in Imperial Road and to provide additional sites for yard-based industries especially those involved with the re-use or recycling of locally produced waste to help meet the Council’s wider sustainability objectives. These industries are extremely important to the local area through the services they provide. Because of the open nature of the use they existing facilities are under considerable pressure from other higher land- value schemes; they are also under pressure because they are not appropriate in many locations. These uses provide much-needed jobs appropriate to the skills of many unemployed people as well as valuable local services. Where a redevelopment scheme involves the displacement of these uses the Council will seek the replacement of equivalent facilities. Where opportunities arise the Council will seek to make further provision for these uses. Old Oak Sidings (formerly known as Site 40) and Old Oak Common Sidings (formerly known as Site 84) are considered an appropriate sites in the Hythe Road area in conjunction with other industrial uses and the Townmead Road/Imperial Road Employment Zone in the south of the borough is also considered appropriate. Applications will be subject to a satisfactory environmental traffic impact assessment.

7.49 Major retailing uses - These may provide sufficient employment to justify location in an employment zone but town centres are the preferred locations for these uses in accordance with other policies of the Plan. To accept a major retail use in an employment zone the Council would need to be satisfied that there would be no serious adverse effect on the vitality and viability of a town centre and that the use would not lead to a scarcity of land for B Class Uses.

7.50 Small A Class Uses - It is appropriate within employment zones where there are large concentrations of employees to permit small shops, cafes, and service activities. These uses will be expected to show a relevance to the needs of the employment zone. They will not be permitted if there are existing nearby facilities or are likely to have an adverse impact on local shopping provision. The scale of any shopping provision has been restricted to less than 500 sq.m.. Development above this size is likely to be unacceptable since it would considered to provide a level of provision greater than is necessary to provide a local facility. Schemes between 500 sq m and 2500 sq m will have to demonstrate that there is no need for the site or premises for B class purposes and that they would be complementary to the employment zone. Furthermore schemes should demonstrate that there would be no detrimental traffic impact or be prejudicial to the retail strategy of the Plan.

7.51 Other employment and employment related uses - The Plan encourages the provision of employment related facilities such as training and childcare. Whilst it is often the case that these will form an integral part of a development it would also be appropriate for individual sites to be used entirely for these purposes. Other examples include uses generating significant employment such as exhibition or design centres and telecommunications studios where employment zones provide the most appropriate location. There are also some leisure and health club activities which provide a valuable facility within the Borough and are space-extensive so that location in an employment zone may be the most appropriate. The main criteria for assessing applications for these other employment generating uses are that it would not lead to a scarcity of land for B Class uses or would not significantly change the composition of the area. Applications will be carefully considered in relation to traffic implications and public transport accessibility. Whilst small scale activity, primarily providing a service for the employment zone, may not be inappropriate,

Chapter 7 278 London Borough of Hammersmith and Fulham: UDP Alterations

larger schemes would be more appropriately located in highly accessible areas. Only where town centre and other sites are not available or unsuitable will these uses be considered within the employment zones. In both cases consideration will be given to the availability of land for B Class uses and the likely traffic impact on the area (see also CS2A). It will also be appropriate to have regard to the nature of the employment zone and the surrounding uses and in some circumstances other non- residential uses may be regarded as an inappropriate neighbour. For the purposes of this policy other non-residential uses is defined as including hotels.

E2 TOWN CENTRES [Note: This policy and paragraphs 7.52 - 7.54 have been moved to the new town centres chapter (see policy TC5)

E3 SITES AND BUILDINGS PROVIDING EMPLOYMENT OUTSIDE EMPLOYMENT ZONES AND TOWN CENTRES

1994 Policy E3 replaced by altered text shown below

Development of sites or buildings currently or last in use for B1 – B8 purposes or other similar use which does not fall within Class B such as yard based industries, will only be permitted if the proposal is for use within Classes B1 - B8 or similar use, or: a). the proposal is for other non-residential uses that provide significant employment, and there is no identified need for the site or buildings for Class B uses; or

(b). the proposal is wholly for affordable housing, the site is vacant and the development would not prejudice the continuation of adjacent employment uses; or

(c). the proposal involves the site or buildings being developed to the maximum plot ratio for Class B1-B8, but such development does not occupy the whole of the site, whereupon development of the residual part of the site for affordable housing will be acceptable; or d). the proposal is for any other use and the application is supported by a statement of the efforts made to secure re-use for class B1-B8 or similar uses or other non-residential use that provides employment, which indicates that there is no realistic prospect of the site or buildings concerned being used or re-used including redevelopment for these purposes: or e). the site or buildings would be physically unsuitable for re-use for Class B1 – B8 or similar use, even after adaptation, refurbishment or redevelopment, in terms of siting, design, access, layout and relationship to neighbouring buildings and uses.

Chapter 7 279 London Borough of Hammersmith and Fulham: UDP Alterations

7.55 In designating employment zones and town centres the Council has made provision for the retention and expansion of a range of employment generating activities. However the Borough has a substantial amount of total employment provided in firms and organisations situated on sites elsewhere throughout the Borough. Many of these firms are in mixed use or predominantly residential areas. Employment in these areas often provides valuable local job opportunities and local services easily accessed by local people, and continuation of this pattern of employment and services has environmental advantages by reducing the need to travel. For the same reason, where surrounding uses permit, floorspace to accommodate ancillary residential use may be considered provided the premises are occupied as a single unit. In line with PPG4 (1992) it is not the Council's intention that these uses should be displaced. Some premises in B Class or similar use do not directly provide employment for example certain storage uses and some sui generis uses such as builder’s yards, telephone exchanges. However, premises for these uses provide a valuable, complementary role and are a necessary part of the stock of premises available for economic activity in the borough. Where sites become vacant, their re-use or redevelopment for wholly employment use subject to the plot ratio standard is considered desirable in order to retain a satisfactory range of employment premises in the borough and to preserve the mixed use character of the borough. However in certain circumstances, when redevelopment, refurbishment, conversion or extension is proposed, the Council would need to ensure that the resulting environmental and traffic conditions are satisfactory. In those instances when an employment use would not be satisfactory the Council would look for affordable housing or community service uses as an appropriate alternative. In developments for alternative employment uses, gross floor areas will not be permitted in excess of that permitted by the plot ratio applicable to the areas' level of public transport accessibility (see Transportation and Accessibility, and Standards chapters). Where this requirement means that developments can be built harmoniously with their surrounding environments and leave land vacant or potentially vacant this may be developed in appropriate circumstances for affordable housing. (see policy H05 and paragraph 6.105). In wholly employment schemes, the plot ratio standard is not required to be maximised. The policy (clause c) would enable an exception to be made to the mixed- use density standard S2.3 but is only acceptable in the case of the provision of affordable housing because of the overwhelming need for this type of housing. The council will publish regular monitoring reports on land and premises availability during the lifetime of the Plan. If this monitoring indicates a projected longer term over-provision in the supply of premises for B Class use, alternative non-residential uses that generate employment will be considered as an alternative subject to other policies of the Plan. Where an employment site covered by this policy is vacant, a scheme for permanently available affordable housing may be permitted, as an exception to the council’s normal policy of retention in employment use. However, there are many sites and buildings in employment use which are part of a group of more than one individual premises. In these circumstances affordable housing would not be permitted where the siting of the premises is such that the introduction of housing could give rise to pressure for the termination of these adjoining uses on amenity grounds. (See HO5 (iii) and paragraph 6.104).

Where an application is made under clause d) the supporting statement should include as a minimum requirement • The length of time the property has been unused for employment purposes; • The length of period during which it has been actively marketed for such purposes which should include the possibility of redevelopment and should provide evidence of this marketing (this should not be less than 12 months

Chapter 7 280 London Borough of Hammersmith and Fulham: UDP Alterations

and should normally be over at least a two year period). The evidence should show where the property has been marketed including publications with a wide circulation such as property journals; • The prices at which the land and buildings have been marketed during this period which should reflect that obtained for similar property in the locality; • a list of all expressions of interest during this period; • an evaluation of why it is considered that the property has failed to attract interest from potential occupiers or for redevelopment for employment use.

The supporting statement should clearly demonstrate that there is no interest in the property for B Class use and that there is no realistic possibility of the property being brought back into employment use with or without adaptation. An unsatisfactory supporting statement, or one which fails to demonstrate conclusively that a site is no longer needed for employment use will lead to refusal of planning permission.]

[There will be some sites where the physical characteristics of the location of the site in terms of access or site restrictions make it unsuitable for continued employment use. These circumstances will be limited to severe site restrictions which would make the site unsuitable for re-use or redevelopment, if this is the only possible course of action. Clause e) is intended to refer to these specific characteristics and it is not intended to refer to general considerations such as the location of a site within a predominantly residential area.

7.55a It is recognised that considerable employment is provided by uses other than industrial and commercial, however should redevelopment be proposed it is the principal use of the site which will determine future policy. In certain instances on appropriately located sites some commercial development may be permitted as part of a mixed scheme providing local benefit and having regard to the surrounding area. Proposals for other uses generating significant employment will be considered in accordance with the other policies of the Plan. The Council will have particular regard to the need to avoid displacement of existing users; the availability of land in the area for B Class uses, and the level of employment produced by the development.

E3A COMBINED LIVING AND WORKING DEVELOPMENT SCHEMES

Combined living and working development schemes will only be permitted on employment sites outside the employment zones in accordance with the requirements of policy E3 d) or e) and :

(a) there is no prejudice to the supply of affordable housing; and (b) the design, construction and layout of the development would render the workspace of any live/work unit physically unsuitable for use only as living space; and (c) the living space is used only by the occupants of the business use or their employees.

7.55b There is substantial pressure on employment sites to change to residential use. There is also some demand for combined living and working accommodation. This demand is normally for primarily residential accommodation with associated minor workspace for the resident and is similar to changes that would normally be acceptable under permitted development rights. In some limited cases demand is

Chapter 7 281 London Borough of Hammersmith and Fulham: UDP Alterations

from small businesses wanting associated residential accommodation. In both cases the demand from developers is generally for at least 60% residential use and for some flexibility in the use of the floorspace between live and work. It is acknowledged that a limited number of combined use schemes can provide a valuable addition to the range of employment premises available and can reduce journey to work movements especially where effectively controlled to prevent significant residential use. However, provision should not be to an extent which conflicts with the priority of retaining the majority of these sites in wholly employment use to meet the demand from economic activity and to continue to preserve the mixed use character of the borough. Therefore, only where a site meets the criteria set out in E3(d) or E3(e) and a residential scheme can be considered as an alternative use, would a combined use scheme be appropriate. In these circumstances schemes will normally be assessed against residential standards set out in the standards chapter. Where a substantial business element is proposed, greater than normally permitted in a dwelling house, schemes should additionally comply with plot ratio standard S1.1 and B1 car parking standards. Live-work schemes that would prejudice the achievement of affordable housing in line with HO5 will not be permitted unless affordable housing is included in the scheme on the same basis as if the site were a wholly residential scheme.

This policy is formulated to cover combined use living and working schemes on employment sites within the borough outside the employment zones. Where schemes are submitted for sites not in employment use, these will be assessed against H08 having regard in particular to the need not to displace housing.

E4 LAND NOT IN EMPLOYMENT USE OUTSIDE EMPLOYMENT ZONES AND TOWN CENTRES

1994 Policy E4 deleted

E5 REQUIREMENTS FOR B CLASS DEVELOPMENT PROVISION FOR SMALL BUSINESSES

1994 Policy E5 replaced by altered text shown below

Development for employment purposes will not be permitted if it would involve the loss of existing Class b1 business [B] accommodation in a range of units of 500 sq m or less or fails to provide, in schemes of 5000 sq m or more: a). within designated employment zones and town centres, 10% of the proposed floorspace in the form of self contained units suitable for small scale class B1 business use in units of 500 sq m or less. b}. within residential and other areas, 50% of the proposed floorspace in the form of self contained units suitable for small scale Class B1 business use in units of 500 sq m or less.

7.57 During the 1980's the Borough's economy increasingly comprised smaller firms with the overall number of establishments increasing by nearly 40%.. Most of

Chapter 7 282 London Borough of Hammersmith and Fulham: UDP Alterations

this increase was in establishments employing fewer than 25 people. There are also an increasing number of self- employed people working in the Borough, about 12 % of the economically active population. Whilst this is usually carried on from home, once a business is established small premises are often required for expansion. Alongside the changing nature and size of firm, the availability of premises has not always responded to changing demand. The Council's research and information from other sources has indicated that there is an overall short supply of smaller B1 units in the Borough particularly those smaller than 5,000 sq.ft. A particular shortfall is for good quality self-contained units This is the case for all types of B1 use including light industrial, studios and offices. The Government's overall aim as stated in PPG4 is to encourage economic development compatible with environmental objectives. The provision of premises for small businesses, which might not otherwise be provided, is an essential element of this overall strategy (see PPG4 paras. 4 and 5). Small businesses are often not in a position to develop premises for themselves and rely on suitable premises being made available. The Council, through its Economic Development Plan and regeneration initiatives, seeks to encourage the growth of small enterprises by a range of business support initiatives as well as managing its own small unit estates. The further provision of premises for this sector as well as the protection of existing small units where development is proposed would provide much needed encouragement to local enterprise and provide further assistance to this important growth sector. This policy is in addition to policies E1, TC5 and E3 and is intended to specifically prevent the loss of small premises in employment use through re-development. Larger development schemes will be expected to provide small business units as part of the scheme.

7.57a Much accommodation for small business is provided in office accommodation above shops. The Council would not wish to see this supply of accommodation lost by change of use unless the accommodation is shown to have a history of vacancy and underuse and is returning to its original residential use.

7.58 When considering proposals where for B Class development is appropriate over 5000 sq. m.the Council will consider require the inclusion of smaller units for all or part as a proportion of the development, bearing in mind the availability of smaller premises in the locality. to ensure the continued supply of a range of smaller premises. It is unlikely that small units will be sought in a town centre location, but they might be appropriate outside town centres and in employment zones. Town centres are thought to be the most appropriate location for larger- scale office users. In residential areas smaller units would be the preferred option since these areas usually provide a better location for small firms often providing a local service and 50% of the development will be required to be in a range of premises up to 500 sq.m. Small units would not be appropriate if the resulting design would be unsatisfactory and out of keeping in the area. Within the employment zones and town centres, small units may appropriately should be included as part or all at least 10% of a larger business development. The Council has specified small units as part of the development in six site proposals contained in Chapter 10. In addition where a planning brief is prepared small units may be included as the Council's preference for the site. . [Where small unit accommodation is provided in accordance with this policy, the developer may be asked to provide some of this floorspace at preferential rates to encourage this important growth sector.

Chapter 7 283 London Borough of Hammersmith and Fulham: UDP Alterations

E6 WORKPLACE NURSERY PROVISION AND TRAINING FACILITIES

In any development scheme where significant employment is likely to be generated, particularly in schemes with more than 2500sq. m. floorspace, the Council will seek the provision of, or financial contributions towards the cost of, childcare and training initiatives directed at assisting local people to gain access to the jobs that are created. Where the policies of the plan require the retention of land in B Class or employment use, workplace nurseries or training facilities will be an acceptable use, in principle, provided they are directly related to the needs of people working in that locality, are acceptable in terms of traffic impact and do not lead to a shortage of accommodation for B Class use.

In substantial new employment generating schemes for more than 1000 employees or of more than 23.250 sq.m (250,000 sq. ft) of office /B1 floorspace, the Council will seek the provision and operation of purpose built employee workplace nurseries on site. Supplementary guidance is available from the Council.

E7 TRAINING PROVISION

1994 Policy E7 replaced by altered text shown above

7.59 The Council is concerned to ensure that local people have access to the new job opportunities that are being created through the substantial regeneration initiatives and development schemes within the borough. This has the twin objective of helping to alleviate social exclusion by provision of local employment and encouraging sustainability through greater take up of local job opportunities by local people thereby reducing travel to work distances. Women, including those with dependent children, now comprise a substantial and increasing proportion of the workforce. Increased childcare provision in conjunction with employment generating schemes is considered essential and in accordance with the terms of DoE Circular 16/91 B8(3). Provision of childcare, which targets local people, would additionally increase access to employment opportunities for those who would otherwise be hindered in competing for jobs because of childcare responsibilities. As these facilities would be linked to employment, they would be an appropriate use in employment zones and town centres.

7.60 The Council fully recognises that there is an optimum level for the provision of nursery facilities and that smaller schemes would be unlikely to be able to provide facilities themselves. Consequently the Council will seek in large schemes over 1,000 employees the provision and operation of facilities on site. These schemes should provide a nursery of at least 25 places rising to a maximum of 50 places.

7.61 There is a substantial mismatch in the borough between the skills of the local unemployed people and the job opportunities that are becoming available. In common with other London boroughs there are also substantial movements into and out of the borough to work. The Council believes that the need for increased for employment amongst of local people by new employment generating developments, and the need for training and retraining, especially to alleviate unemployment is an are important environmental and social considerations to be taken account of in its planning policies. Furthermore, training facilities will increase the likelihood that local

Chapter 7 284 London Borough of Hammersmith and Fulham: UDP Alterations

people can successfully compete for local jobs and this will reduce the potential length of their journey to work, with consequential environmental benefits.The overall strategy of of the latest Government Guidance expressed in PPG13 and other Circulars is to minimise length and number of trips. It follows from this that larger employment generating schemes should seek to assist the local workforce to acquire skills for the jobs they will provide rather than encourage lengthy journey-to-work trips.

7.62 It is considered that the most effective method of achieving this is for incoming employers to provide on site training facilities schemes which enable local people to achieve the relevant skills for the jobs available where they can run relevant courses for unemployed Borough residents, related to their skill needs. Where a local training and recruitment agreement is not possible developments will be expected to contribute to the cost of local training initiatives supported by the Council. Where appropriate this will be linked to the Regeneration schemes that are operative in the borough. Employers should also enter into training and recruitment agreements whereby they undertake to work in conjunction with the Council to encourage local recruitment initiatives.

7.63 The provision of training will normally be sought as part of a planning obligation agreement in accordance with Circular 16/91. It is accepted that only where a known large employer is party to an application can the necessary agreements be concluded prior to the development being built. As a result, the above condition would only apply to schemes where an employer is to provide more than 1,000 jobs.

E8 IMPROVING EMPLOYMENT AREAS

The Council will seek to achieve improvements to premises, the environment and facilities in all employment areas, town centres and in mixed industrial/residential areas, through Government funding, where appropriate, in partnership with the firms and businesses involved and through redevelopment proposals. There are three operative regeneration partnership programmes within the borough (White City Regeneration Partnership, the Park Royal Partnership and Bridging the Divides).

7.64 Strategic Guidance places great emphasis on the preservation of economic activity in the older industrial areas of London. This would apply to most of the employment zones in the Borough. Under the Urban Programme the Council was able to undertake programmes of assistance to these areas. These funds are now no longer available, however the Council will seek to attract funds under the Government's new initiatives. Improvement to these areas is therefore dependent on funds being made available or through a redevelopment scheme which could appropriately include enhancement proposals. Government policy in recent years has placed emphasis on the need for regeneration within urban areas. This overall strategy involves direct investment into specially designated areas where pockets of deprivation exist and where social and economic regeneration can be achieved through a package of measures to attract inward investment and to improve the environment of the area and the skills of the local workforce. The Council will bid for further programmes as appropriate and will look to all possible sources of new funding to achieve further improvement to employment areas and town centres. Development schemes will be expected to have regard to any regeneration initiatives in operation in an area, including environmental and transport improvement

Chapter 7 285 London Borough of Hammersmith and Fulham: UDP Alterations

programmes. Good design will be important, as will improvements to increase safety and security in employment areas.

7.64a Two programmes are currently operative within the north of the borough. The Park Royal Partnership area covers the wider Park Royal area within the London Boroughs of Brent and Ealing and the north west corner of Hammersmith and Fulham comprising the Hythe Road Employment Zone. It is aimed at regeneration within the Park Royal industrial area and runs until 2002. The White City Regeneration Partnership area covers White City, Shepherds Bush, College Park and Old Oak. It is aimed at generating improvement through a partnership of public and private bodies and seeks to attract inward investment to upgrade the area as well as improving access to local employment opportunities of local residents. The third major regeneration programme (Bridging the Divides) extends the White City Partnership southwards to the river down the borough’s eastern boundary. One of the three key areas of this most recent initiative is to promote enterprise and employability by seeking to establish routes into employment, stimulate enterprise and increase competitiveness within the area. Development opportunities within these areas should have regard to the wider objectives of these programmes.

E9 ACCESSIBILITY TO EMPLOYMENT OPPORTUNITIES

1994 Policy E9 deleted

E10 TOURISM

The Council will encourage the development of facilities for tourists and visitors to the borough, subject to the need to: i) protect the housing stock and the amenities of the local community; ii) ensure that tourism is managed in such a way as to increase the level of economic activity and employment opportunities for the local community and businesses; and iii) seek facilities which embrace a wide range of arts, culture and entertainment activities for participation and enjoyment by all sections of the community (see also policies CS1 and CS2).

7.66 The Council, whilst recognising the benefits of tourism to London expressed in RPG3, considers that the Borough is not a major centre for tourism. There are some features of interest and supporting facilities such as hotels, but the Council does not believe the Borough should or could consider that the borough has the potential to become a major tourist centre. Nevertheless, many facilities which provide for local residents and businesses and visiting businessmen and women, e.g. Le Palais and Riverside Studios, also attract patrons from a wider area This policy is intended to be complementary to other policies of the Plan and covers such diverse activities as theatres, conference facilities, hotels, riverside activities, sports activities and enhancement of the historic environment.

A growth in the number of These visitors to the borough can make a useful contribution to the local economy of the Borough and will not be discouraged. The

Chapter 7 286 London Borough of Hammersmith and Fulham: UDP Alterations

hotels and tourist-related facilities also provide a range of job opportunities and arts, culture and entertainment facilities for the local community, and the development of new or improved facilities is therefore welcome provided there is no undue adverse consequences on the housing stock and on local amenities (e.g. car parking problems and noise and disturbance). The Council has prepared a Visitor Strategy which seeks to enhance the role of tourism in the borough in recognition of its potential to assist in economic diversification and regeneration.

E11 HOTELS AND TOURIST-RELATED DEVELOPMENT

Proposals for hotels, including extensions to existing hotels, and any other development in the Class C1 (Hotels) category will be considered subject to: other priorities of the Plan, particularly in relation to the maintenance of the housing stock and protection of environmental quality. Proposals for other tourist-related development, such as recreation and entertainment, will be considered in relation to policies CS1, CS2 and CS2A, in the Community Services chapter. Development for hotels, boarding and guest houses (Use Class C1), including extensions of existing premises, will only be permitted provided:

(a). the site is in a town centre or, in terms of its scale and location is well related to public transport and tourist facilities; and

(b) the site or building is not within or close to a residential area; and

(c). where a site has been in employment use, there is no demonstrable need for the site or building for Class B uses. d) there will be no loss to the housing stock.

In larger developments particularly those in excess of 50 bedrooms the council will seek related benefits including a training and recruitment agreement and use by local people of any related facilities such as a health suite subject to environmental and traffic impact.

7.67 The Council will usually consider the provision of new hotels for tourists, and developments such as 'apart hotels' for business people and 'serviced apartments’, only in predominantly non- residential areas with supporting facilities, especially good public transport, and where they can contribute to the functioning of the local economy and provide local employment. The preferred location for new hotel development will be in a town centre location where public transport is usually good and where supporting facilities are available. Because of overriding housing needs, the use or replacement of the housing stock by hotels is not considered to be in the best interests of the Borough. Their location in predominantly residential areas is also considered inappropriate because of the activity, noise, disturbance and traffic generation often associated with such businesses. In assessing new hotel development the Council will have regard to the likely level of employment generated, especially where conversion of an office building is proposed. Hotel development will not be allowed to displace an office building that is capable of continued satisfactory use for business purposes either with or without adaptation.

Chapter 7 287 London Borough of Hammersmith and Fulham: UDP Alterations

The Council recognises that hotels often provide job opportunities involving a range of semi-skilled occupations that might met the needs of many unemployed borough residents. In all new hotel developments where substantial employment is generated the Council will seek a local training and recruitment package to assist local people to obtain the jobs that become available. Considerable nuisance can be created by hotels where the facilities and access arrangements are unsatisfactory for coaches. These standards will be enforced rigidly to avoid the possibility of nuisance on the road network. In order to ensure that a new hotel development is of an appropriate scale for the area the determining factors will be the relationship to the adjoining buildings and the ability of the public transport system to cater for the anticipated travel movements.

Chapter 7 288 London Borough of Hammersmith and Fulham: UDP Alterations

CHAPTER 8: COMMUNITY SERVICES

RESTATEMENT OF PART 1 POLICY G7: COMMUNITY SERVICES IN TOWN CENTRES AND ELSEWHERE outside town centres 291

JUSTIFICATION FOR PART 1 POLICY G7: 291

INTRODUCTION 291

ISSUES 292 Factors that affect the demand for community services 292 Changes affecting the supply of community services 294 The need for accessible community services 295 Effect of community service uses on the local environment 295 Policy Context 296 National 296 Regional 297 Strategic/London-wide 297

STRATEGY 298

PART 2 COMMUNITY SERVICES POLICIES 299

DEFINITION OF COMMUNITY SERVICE USES 299 CS1 RETENTION AND PROVISION OF ARTS, CULTURE AND ENTERTAINMENT FACILITIES 299 CS2 RETENTION AND PROVISION OF RECREATION FACILITIES 300 CS2a NEW ACE AND RECREATION FACILITIES 300 CS2B NIGHT-TIME ACE AND RECREATION 301 CS3 PROFESSIONAL FOOTBALL GROUNDS 303 CS4 RETENTION OF OTHER COMMUNITY SERVICES USES 303 CS5 PREMISES FOR COMMUNITY GROUPS 304 CS6 RELIGIOUS MEETING PLACES 305 CS7 PUBLIC CONVENIENCES 305 CS8 AVAILABILITY OF LAND/BUILDINGS FOR COMMUNITY SERVICES 306 CS9 LEVEL OF COMMUNITY SERVICES PROVISION 306 CS10 LOCAL COMMUNITY SERVICES 306 CS11 COMMUNITY SERVICES AND PLANNING BENEFITS 307 CS12 DUAL USE OF COMMUNITY SERVICE FACILITIES 308

Chapter 8 289 London Borough of Hammersmith and Fulham: UDP Alterations

Chapter 8 290 London Borough of Hammersmith and Fulham: UDP Alterations

CHAPTER 8. COMMUNITY SERVICES

RESTATEMENT OF PART 1 POLICY G7: COMMUNITY SERVICES IN TOWN CENTRES AND ELSEWHERE OUTSIDE TOWN CENTRES

The Council will seek an adequate range of convenient and environmentally sustainable facilities available to all sections of the community for shopping, recreation and entertainment, the arts, culture, health, education and other purposes. CS1, CS2, CS2a, SH1, SH4, SH7, SH10, SH11, SH12

In particular, this will be achieved by: a) designating Hammersmith, Fulham and Shepherd's Bush as town centres in accordance with Part 1 Policy G2 and seeking to sustain a wide range of shopping and service provision, entertainment and other appropriate facilities within them; E2, SH2, SH6, SH8, TC2, TC4, Sites 27, 36, 75, 79, C, D, E, F, G b) resisting entertainment and leisure uses that are likely to be major generators of transport demand, and which are not supported by evidence of demonstrable need and a sequential approach to site selection, and that are not accessible by a variety of means of transport, or are likely to have a serious adverse effect on the vitality and viability of the town centres. b) dealt with in Chapter 9 c) dealt with in Chapter 9 d) c) seeking the provision of facilities for education, health, recreation, entertainment, the arts and culture in locations that are accessible to the people who will use them; CS1-12, Sites 19, 27, 34, 36, 54, 55, 72, 75, 76, 79, 84, H, C e) seeking to ensure that large new developments contribute to the provision of community service uses appropriate to the scale, nature and location of the scheme, . CS11, SH10, Sites 27, 32, 36, 72, 78, 84.

JUSTIFICATION FOR PART 1 POLICY G7:

INTRODUCTION

8.1 Community service uses include shopping, arts/culture/ entertainment, education, health, recreation, religious meeting places, operational facilities of public emergency services, social services, advice/information services, and premises used by community/voluntary groups. They can be considered as a group, with many common features, for land-use planning purposes, because there should be a strong orientation towards between the provision of community services and maximum

Chapter 8 291 London Borough of Hammersmith and Fulham: UDP Alterations

accessibility for potential users. It is important, therefore, to ensure that community services are provided in locations that are readily accessible to the communities they serve and compatible with the local environment. In the UDP, shopping which is also a community service is dealt with separately in Chapter 9 Shopping and Chapter 9a Town Centres.

8.2 A wide range of public, voluntary, and private sector agencies are involved in the provision of community services in Hammersmith and Fulham. and Some services are provided often on a non-profit basis, although in some spheres but others, such as entertainment, are often subject to there is significant private sector commercial provision. Hammersmith and Fulham Council is itself the main provider of some community services, such as education, social services and recreation, whilst it is also a significant provider in other spheres, such as arts and entertainment. It also has specific regulatory powers derived from other legislation. In addition the Council also has involvement an indirect regulatory responsibility via its function as a funding agency for many voluntary bodies involved in the provision of community services.

8.3 Health care is primarily the responsibility of the Ealing, Hammersmith and Hounslow Health Authority Agency, which will be responsible for producing an Health Improvement Programme, and several National Health Service Trusts. Other health authorities, outside Hammersmith and Fulham, are also involved in the provision of hospital care for Hammersmith and Fulham residents in specific situations. Arts, culture and entertainment facilities in the Borough are provided by a mixture of public, voluntary and private sector bodies. The voluntary sector is of particular importance in the provision of local community services in Hammersmith and Fulham, and includesing both the local branches of national bodies and locally-based groups. It provides a wide range of services, extending from old people's luncheon clubs to hostels for single homeless people.

ISSUES

Factors that affect the demand for community services 8.4 Everyone uses some or all community services at some different stages in their lives. There are community services devoted to caring, education, religion and leisure as well as other aspects of life. , however Some sections of the community, particularly the target groups (identified in Chapter 2), such as people with disabilities and elderly people, often have a higher demand for community services concerned with caring responsibilities. The characteristics of the Borough's population affect the demand for a wide range of community services in the Borough. The Borough's population has changed considerably over the years, in terms of the size of the total population, its distribution between different age-sex groups and its social characteristics. The population, after falling since 1921, has now stabilised and the latest population projections suggest a small increase very little change in the population of the Borough up to and beyond 2001, with the possibility of some slight increase after that (para. 2.4). Significant changes are however expected in the age structure of the population (para. 2.6) and its ethnic composition, and changes factors relevant to this Chapter include: i) The demand for school places has been is affected by the fall changes in the Borough's population, particularly up to 1981. In the last 10 years there was an increase in the pre-school population, although this is now projected to fall slightly

Chapter 8 292 London Borough of Hammersmith and Fulham: UDP Alterations

again. In the next 10 years there is likely to be an increase the numbers in the secondary school age group will be stable. ii) The numbers and proportion of elderly in the population have fallen in the last 20 years and this fall is likely to continue up to 2001 2011 which will influence the demand for those services most used by the elderly. iii) The age structure of the ethnic minorities is younger than the average in the Borough and they are therefore likely to constitute an increasing proportion of the total population in the 1990's.

8.5 The Borough has a highly varied population in terms of economic, demographic, and social characteristics and other variables, and it experiences many of the issues problems confronting facing multi-racial communities in Inner London. Overall There is substantial disparity in income between those affluent members of the community and the poorer residents. Areas of relative affluence exist side by side with areas experiencing high levels of poverty and disadvantage, are characterised, for example, by factors such as high levels of homelessness, families in housing need, children in care, non-car owners, unemployment, and reliance on low-paid jobs. All These factors combine to generate a high and varied level of demand for community services in Hammersmith and Fulham, whilst in addition there are more specific demands from groups such as those people affected and infected by HIV/AIDS and asylum seekers.

8.6 The multi-cultural nature of the population and the high proportion of black and ethnic minority groups not only affects the type of health, education and social services that need to be provided but also creates a potential demand for a very diverse range of arts, cultural, entertainment, recreation, religious and community facilities. In some spheres, such as health and social services, existing service delivery systems may be able to respond to this demand. In other areas, such as arts, and entertainments, special initiatives may be required, to mobilise and involve all parts of the Borough's diverse cultural heritage to the full.

8.7 There is a growing demand for non-profit private health care, from, for example, ethnic minority communities with specific health care needs not accommodated by the National Health Service, and for complementary therapies such as homeopathy and osteopathy. There is a more limited demand for other private health care facilities, such as clinics and nursing homes. There is also specific provision, particularly by voluntary agencies, for the Borough's high proportion of people who are HIV positive.

8.8 Although The demand for leisure activities is influenced by the age and sex, culture, income and mobility of the population particularly affects demand for education and leisure activities. In the late 1990s there has been an increasing demand for a wide range of day nursery provision and a growth in time devoted to leisure activities. However a particular feature of the demand for particular leisure activities is that it can change very rapidly. For example, whilst the number of trips to demand for cinemas fell dramatically up to the mid 1980s and led to many buildings being demolished or put to alternative use, the number of trips but demand is increasing again now, and there is pressure for development of multi-plex cinemas. The demand for indoor recreational activities such as snooker squash, tennis and aerobics health and fitness have all also increased. Although the demand for particular activities may change, there is a continuing demand for a range of leisure activities, and often buildings and sites can be reused for another activity, for example, in the 1960s and 1970s cinemas were used for bingo.

Chapter 8 293 London Borough of Hammersmith and Fulham: UDP Alterations

Changes affecting the supply of community services

8.9 There have been considerable changes Over the years, in the supply of different community services has been affected by due to factors such as changes in service delivery systems, expenditure cut-backs and trends in consumer preferences changes in demand, which have sometimes had adverse effects on the communities which they serve. Such changes often lead to buildings becoming surplus to requirements, raising the possibility of their loss for community use, and due to financial reasons, their redevelopment for commercial use.

8.10 Community services, particularly those provided on a non- profit basis, or serving community groups are often funded directly or via grant aid, from central or local government, and are highly vulnerable to changes in national economic policy.

8.11 In the private sector, Community services such as arts and cultural facilities can be affected by the funding policies of bodies such as the Arts Council and may be subject to strong redevelopment pressures. Cinemas and theatres, in particular, often occupy valuable town centre sites, where site values can be greatly increased if redeveloped for commercially more profitable uses, such as offices.

8.12 At the same time, pressures on public bodies, such as The National Health Service and the Council’s Education Service have been two community service providers which have been subject to , to become more cost-effective, often lead to a changes in service provision strategies, including rationalisation of their activities, particularly in a service delivery context. The Tomlinson Report, for example, has raised doubts about the future of Charing Cross and Hammersmith Hospitals. Such pressures have major implications for the development of viable community services policies. In particular, it may lead to the closure of facilities which, although providing a valuable service for their local communities, do not meet cost-effective criteria . In both cases, sites and premises have changed out of community use and have been developed, or are awaiting development, for affordable housing and other uses.

8.13 The Government has made changes in the way community care services are provided is particularly affected by Government policies such as "Care in the Community", whereby people are cared for in the community rather than in large institutions, and will be further affected by more recent Government initiatives such as Primary Care Groups. There are important land-use implications at the local level as a result of the evolving nature of health care, including responding to, on account of the need for facilities such as health care facilities, day centres and small residential units, rather than large residential institutions outside the Borough.

8.14 Some community services, such as education and social services, that are provided directly by Hammersmith and Fulham Council, have, in addition, to compete for funds with other council services. They can also be adversely affected by other factors, such as revenue expenditure capping. Lack of funds can affect the level and range of services that can be provided which can in turn affect the need for premises and land.

8.15 There is only a limited supply of community service sites and buildings in the Borough, but changes in the supply of community service uses lead and whilst on the one hand some of these have been subject to pressure for change of use or redevelopment of these buildings to higher value uses, for example from churches, church halls and football grounds to residential use, or from cinemas and theatres to

Chapter 8 294 London Borough of Hammersmith and Fulham: UDP Alterations

offices, at the same time there are enquiries from a wide range of other community service uses that wish to locate in this Borough, but, because of the very high land values, find it difficult to obtain sites. has been provision of new premises, for example through changes of use of residential ground floors to day nurseries and office premises to educational use. Few new buildings have been built, but there are a number of schemes awaiting development, for example multi-plex cinemas and health and fitness facilities at Shepherds Bush and at Fulham Broadway.

The need for accessible community services 8.16 All community services need to be sited in locations that are readily accessible to their users, bearing in mind that some users are more mobile than others, and that different community services may serve very different catchment areas. For example, a day nursery or a luncheon club may serve a very local catchment area, and need to be located within walking distance of the homes of potential users. Other facilities, such as a hospital or a further education college, may serve much larger catchment areas and need to be located where there is a high degree of accessibility by public and private transport, such as the three town centres. Major entertainment facilities need a town centre location where public transport accessibility is good.

8.17 Equally important, the majority of clients of some community services are from low-income disadvantaged sections of the community. It is vital that such services are located so as to provide maximum accessibility for potential clients, taking into account client- related factors such as frequency of visits and personal mobility, as well as minimising any potential adverse environmental impacts.

8.18 Some of the Borough's community services, particularly arts, culture and entertainment, serve regional and national catchment areas. These include cultural venues such as the Lyric Theatre and Riverside Studios, entertainment venues, such as Le Palais and Labatt's Apollo, and the Borough's three professional football grounds, all of which are vital components of the local cultural infrastructure. There is a particular need to promote maximum public transport accessibility for users of these facilities whilst, at the same time, preserving and enhancing the amenities of local residents, workers, shoppers and others.

Effect of community service uses on the local environment 8.19 Community service uses vary very widely in terms of their effect on the local environment. This effect depends on the nature and scale of the building use involved, the traffic generated and the extent to which traffic is visits are concentrated or spread out during the day and/or the night. However, Many such uses already exist, and although they may from time to time often do have an adverse impact on the local area, this has to be weighed against the value they have for the community as a whole. and the fact that most of the facilities could not be relocated elsewhere in the Borough, without a similar adverse impact.

8.20 Although the large community service activities can have a major impact on the local environment, much smaller activities, like a day nursery or day care centre in a residential area, can also have a significant impact on the local area if additional cars or ambulances are trying to park in an already congested residential street. It is therefore important to assess the impact of all proposals regardless of size.

Chapter 8 295 London Borough of Hammersmith and Fulham: UDP Alterations

POLICY CONTEXT

National 8.21 There is no overall national policy context for community services although draft Planning Policy Guidance Note 12 Development Plans and Regional Planning Guidance (PPG12) states that in para. 5.48:

"The Regulations also require planning authorities to have regard to social considerations in preparing their general policies and proposals in structure plans and UDP Part 1s. But, local planning authorities , in preparing detailed development plans too, authorities will wish to should consider the relationship of planning policies and proposals to social needs and problems, including their likely impact on different groups in the population, such as ethnic minorities, religious groups, elderly and disabled people, women, single parent families, students, and disadvantaged and deprived people living in inner urban deprived areas."

The PPG continues by stating that;

“ Plans should also make provision for land for schools and higher education, for places of worship, prisons, and other community facilities...... Local authorities may have wider social considerations in mind in considering the future development of their communities. In that case it is important to use the explanatory memorandum or reasoned justification to make explicit that view and the influence it has had upon development plan proposals. and Planning Policy Guidance Note 17 Sport and Recreation (PPG17) states in para. 2:

"It is the policy of the Government to promote the development of sport and recreation in the widest sense; to enable people to participate in sport, whether as players or spectators and to encourage the provision of a wide range of opportunities for recreation, so that people can choose those which suit them best. Such opportunities should, wherever possible, be available for everyone, including the elderly and those with disabilities for whom access to facilities is especially important."

8.22 More recently, Planning Policy Guidance Note 13 Transport (PPG13) has provided more detailed guidance in relation to leisure, tourism and recreation and states in paragraph 3.12 that:

"In local plan policies, authorities should in particular:

- concentrate facilities in town centre and other locations well served by public transport;

- provide town centre locations for cinemas and theatres to give vitality in the evenings;

- maintain and encourage the provision of local leisure and entertainment facilities; and

- make provision for attractive and accessible local play areas, public open space and other recreational facilities"

Chapter 8 296 London Borough of Hammersmith and Fulham: UDP Alterations

In respect of education and other public facilities the PPG states in paragraphs 3.13 and 3.15 that:

"Facilities with wide catchment areas attracting large numbers of people should be located so that they are well served by public transport and as accessible as possible for those who need to use them. Such facilities include higher and further education establishments, conference centres, hospitals, main libraries and principal offices of local authorities." and

"Policies should encourage the location of other facilities which need to be near their clients in residential areas or local centres so that they are accessible on foot or by bicycle. Such facilities include schools, health centres, branch libraries and local offices of the local authority and other service providers (such as local offices of the utilities)"

8.23 For other community service uses, Planning policies have to respond to the land-use implications of service delivery strategies, such as Care in the Community, Healthy Living Centres, the White Paper “Saving Lives: Our Healthier Nation” and Sport England’s “A Sporting Future for the Playing Fields of England”.

Regional 8.24 A New Strategy for the South-East: SERPLAN (1990) para. 2.84 stresses the significance of the quantity and quality of provision for arts, culture, entertainment, sport and recreation for the region, and their role in helping to stimulate economic regeneration and environmental improvement. However, it recognises that formulation and implementation of detailed policies needs to be undertaken at sub-regional and local levels. RPG 9 Regional Planning Guidance for the South East states that:

“Plans should also ensure a mix of urban uses ( including a range of facilities for shopping, recreation, arts and leisure).....accessible to all sectors of the population”

“The pattern of development should be less dispersed with more sustainable patterns of activity, allowing home, work, leisure, green spaces, cultural facilities and community services to be in close proximity”.

Strategic/London-wide 8.25 Strategic Guidance (RPG3) does not have much to say about community services activities but in relation to sport and recreation, it states includes as one of the Government’s objectives to:

“enhance the vitality, viability and character of town and other local centres as shopping and community facilities that are accessible to all”

In addition it states that:

"Boroughs should take account of the importance of sport and recreational facilities, including playing fields and include appropriate land use policies in their UDPs".

LPAC's 1994 Advice states that Boroughs, in reviewing UDPs, should:

Chapter 8 297 London Borough of Hammersmith and Fulham: UDP Alterations

"Recognise the regional, national and international importance of sport and recreation for employment, business generation, tourism and international prestige, and include policies to protect and facilitate the improvement of existing, and encourage the construction of new, major venues and facilities and ....maintain, protect, enhance and integrate provision for ACE facilities...."

The report "Capital Prospect: A Strategy for London Sport" (London Council for Sport and Recreation: 1987) identifies a wide range of unmet demands for sports facilities. However, implementation of the report's proposals depends largely upon the resources available to individual Boroughs.

STRATEGY

8.26 The Council's strategy for community services builds upon the increasing importance afforded to these uses by the Government and other bodies recognises the diversity of these uses and their importance to peoples quality of life. The Council considers it is essential to ensure that a full range of community services, including education, health and welfare services, is provided to meet the needs of the very diverse population, especially those who experience social exclusion. This strategy involves means resisting the loss of existing pressure to close well-located community service facilities, such as hospitals, theatres, and cinemas, unless there is genuinely no community need for these facilities or unless there is a satisfactory alternative or replacement available. Even where there is no need for the original activity it is important to retain the site, or at least part of the site, for appropriate community service use because of the need for a wide range of community service such uses in the Borough, and the lack of suitable sites which some of these uses can afford. For the same reasons, where redevelopment is necessary, it is important that the original use or another community use is relocated on the site, or else these uses would be permanently lost in this Borough.

8.26a The Council recognises the importance of community services as an integral element in the sustainable regeneration of the borough. In respect of proposals for new facilities, especially those connected with the leisure industry, the Council will ensure that facilities which are likely to attract large numbers are located in town centres and other areas of high public transport accessibility. It will also seek to ensure that facilities are accessible and affordable to the local community as well as those who may travel from farther afield.

8.27 The detailed community services strategy has three main components. These are: i) Retention of existing community service facilities, particularly those most at risk from commercial redevelopment pressures; ii) Replacement of any community services lost on redevelopment, in response to local needs, and encouragement of service expansions where appropriate; and iii) Encouraging, as part of the sustainable regeneration of the borough, the provision of new community service facilities which meet local needs in appropriate locations by measures such as Section 106 agreements with developers that include the provision of new community services, and utilising other sources of funding, such as SRB, for specific activities, such as arts and culture.

Chapter 8 298 London Borough of Hammersmith and Fulham: UDP Alterations

PART 2 COMMUNITY SERVICES POLICIES

DEFINITION OF COMMUNITY SERVICE USES

Community service uses, for the purpose of these policies, include education, health, social services, operational facilities of public emergency services, arts, culture and entertainment, recreation, advice/information services, religious meeting places, and premises used by community/voluntary groups.

CS1 RETENTION AND PROVISION OF ARTS, CULTURE AND ENTERTAINMENT FACILITIES

The Council will seek to retain arts, cultural or entertainment (ACE) use of buildings or land and will not normally allow change of use to other purposes. Where redevelopment is proposed the Council will require replacement accommodation for ACE uses on the site. If the continuation of an arts, cultural or entertainment use is not appropriate or viable the preferred alternative use would be for recreation. In the absence of any viable or appropriate recreation uses alternatives will be considered in accordance with other policies in the Plan. The Council will encourage particularly the provision of appropriate new ACE facilities of this type in town centres.

8.28 Hammersmith and Fulham has a very wide range of arts, culture and entertainment (ACE) activities which are important in enhancing the Borough's quality of life. Facilities include the Labatt's Apollo, the Lyric Theatre and Riverside Studios which are of London-wide significance. It also has 3 professional football grounds and other facilities serving more local needs such as cinemas, bingo, libraries and Fulham Palace. Hammersmith and Fulham is a multi-cultural borough and some ACE activities are of particular significance to particular cultural groups. ACE activities are also important in that they provide a variety of local employment, and sometimes help to give identity to local communities. Town centres are appropriate locations for many of these types of services in view of their need for a high level of accessibility and the contribution such uses make to the vitality of town centres, including the night-time economy.

8.29 ACE activities do not usually generate substantial profits but often occupy large and well located sites and therefore tend to can be subject to pressure for redevelopment to higher value commercial uses. If redevelopment is appropriate, it is important that the site is not lost from ACE activities because of the importance of these uses in contributing to the vitality of the Borough. If this is not possible a recreational use is the preferred alternative, because such uses often have similar locational needs as ACE activities and because they can also contribute to the vitality of the Borough and enhance its quality of life. A non-ACE or non-recreational use will not be encouraged, but if such a use proves necessary then the Council will consider uses appropriate to the characteristics of the site, including its size and location, and the relevant policies of the Plan. It is important that any replacement ACE, recreational or other use is appropriate to the site's level of accessibility by a range of means of transport. It is not desirable for facilities that will attract custom from a wide area to be located in areas that are poorly serviced by public transport.

8.30 Theatres provide a valuable community resource and are similarly threatened by financial pressures and the threat of closure. It is therefore important to ensure

Chapter 8 299 London Borough of Hammersmith and Fulham: UDP Alterations

that theatres are cannot be redeveloped for higher value uses without ensuring the retention of a theatre of a similar size and facilities.

CS2 RETENTION AND PROVISION OF RECREATION FACILITIES

The Council will seek to retain the recreational use of buildings or land and will not normally allow change of use to other purposes. Where redevelopment is proposed the Council will require replacement accommodation for recreation uses on the site. If the continuation of a recreation use is not appropriate or viable the preferred alternative use would be for arts, culture or entertainment. In the absence of any viable or appropriate arts, culture or entertainment uses, alternatives will be considered in accordance with other policies in the Plan. The Council will encourage particularly the provision of appropriate new recreation facilities of this type in town centres.

8.31 Recreational facilities include a wide range of uses from playing fields, swimming pools, sports centres and dance halls, to halls for the playing of snooker or chess. Accessible recreation facilities are very important to all members of the community as they provide more active recreation facilities and help people to keep fit. Parts of the Borough are not well served with playing fields and sports grounds, or with indoor sports centres, and it is essential that the facilities the Borough does have are not lost due to pressure for development. Sport England is a statutory consultee on proposals for development which affect playing fields, land used as playing fields in the last five years which remains undeveloped, or land which is identified for use as a playing field in a development plan.

8.31a Recreation facilities, like ACE facilities, tend to can be low value and subject to financial pressures for other uses. If redevelopment of recreation premises facilities is necessary, the Council will seek to ensure that the site remains in a recreation use. Where this is not appropriate, the preferred alternative will be an ACE use because such uses often have similar locational needs to recreational activities and because they can also contribute to the vitality of the Borough and enhance its people’s quality of life. A non-recreational or non-ACE use will not be encouraged, but if such a use proves necessary the Council will consider uses appropriate to the characteristics of the site, including its size and location, and the relevant policies of the Plan. It is important that any replacement recreational, ACE or other use is appropriate to the site's level of accessibility by a range of means of transport. It is not desirable for facilities that will attract custom from a wide area to be located in areas that are poorly serviced by public transport. If the land is lost to commercial uses it is very difficult to find alternative sites for recreational use elsewhere in the Borough. Town centres may be appropriate locations for some recreation uses because of their high levels of accessibility and the contribution such uses can make to the vitality of town centres

CS2A NEW ACE AND RECREATION FACILITIES

Major new arts, cultural or entertainment (ACE) or recreation development will be permitted outside the town centres only if there is no site or building suitable and available within the town centres and if there is a demonstrable need for the facilities. First preference will be given to an edge-of-centre site or building, followed by a key local shopping centre site or building and only

Chapter 8 300 London Borough of Hammersmith and Fulham: UDP Alterations

then an out-of-centre site or building and only if the location is accessible by a choice of means of transport

All proposals, including those unlikely to be significant generators of travel demand (and to which the foregoing requirements do not therefore apply), must also satisfy the following criterion:

The proposal would not undermine the vitality or viability of nearby town centres, whether individually or cumulatively with other out-of-centre ace and recreation developments recently completed or permitted within their respective catchment areas.

8.31a The Council aims to provide for a range of ACE and recreation facilities throughout the borough to meet the local community’s needs. Major new facilities, such as multi-screen cinemas and bowling, which are in excess of 250 seat capacity or 2000sqm gross floor area and 1500 members are likely to attract visitors from a wide catchment area. These uses are best located in town centres where there is good public transport accessibility and the provision of complementary uses. see policy TC1 regarding major developments in town centres The Council has identified a number of sites within the UDP where new ACE and recreation facilities would be appropriate within mixed use schemes.

8.31b Proposals for major facilities for sites not identified in the UDP and shown on the Proposals Map should be located in town centres, and if not within town centres will need to be supported by evidence of demonstrable need in the borough. In addition evidence will be required that a sequential test as set out in PPG 6 has been applied properly. In assessing impact on the environment the Council will consider, the type of use and the number of customers likely to attend, the proposed hours of operation, the level of public transport accessibility for customers either arriving or leaving the premises and the likely means of public or private transport that will be used by customers, the means of access to premises, the level of likely car parking demand on surrounding residential streets and the cumulative impact of ACE and recreation premises in the area, the scope for mitigating any impact and how often the activity occurs. ACE and recreation proposals involving existing sites and premises in these uses should avoid increasing road capacity and should seek to increase access by sustainable transport modes. Wherever necessary the council will attach conditions to planning consents in order to mitigate the environmental impact of development.

8.31c Not all proposals for new ACE and recreation facilities will be of a scale that requires a town centre location, and consequently these will also be suitable within other parts of the borough. The Council will have to be satisfied however that the facilities will attract customers from a local, rather than borough or London-wide catchment area, and that the traffic generation and design of the development is such that residential amenity will not be affected detrimentally.

CS2B NIGHT-TIME ACE AND RECREATION

Planning permissions for night-time ace and recreation development will be subject to conditions controlling hours of operation, as follows: a) Except in predominantly commercial areas, such as parts of town

Chapter 8 301 London Borough of Hammersmith and Fulham: UDP Alterations

centres – premises shall not be open to customers later than the hour of 2300; b) Within predominantly commercial areas, such as parts of town centres – premises shall not be open to customers later than the hour of 2400.

Extended opening may be permitted where: a) The activities would not be likely to cause impact especially on local residents, and that, if there is potential to cause adverse impact, appropriate measures will be put in place to prevent it; and b) There will not be any increase in the cumulative impact from these or similar activities, on an adjacent residential area; and c) There is a particularly high level of public transport accessibility to and from the premises at appropriate times; and d) The activity will not be likely to lead to a demonstrable increase in car parking demand in surrounding residential streets and roads forming part of the Strategic London Road Network or the London Bus Priority Network

Where a use will impact on amenity, the council will also set an appropriate start time.

8.31d ACE and recreation facilities open not only during the day, but also into the evening and at night-time. Indeed some facilities may be used more in the evenings than at other times of the day. This is not a new trend, but more facilities and supporting uses such as restaurants, bars and shops are opening longer and contributing to the night-time economy.

8.31e The Council recognises the benefits of a night-time economy which can add to the vitality of centres, improve the quality of life of the community and lead to the provision of local jobs. It is however important to set hours of closing to safeguard amenity, and for uses which open late to be located in parts of the borough where there is good public transport, a safe and secure environment with good street lighting, and where there are complementary uses. Also, because late night uses have the potential for disturbing residents, it is important that residential amenity is safeguarded when considering ACE and recreation proposals for new developments, extensions or changes of use, or for the amendment of conditions of use and duration of opening. In considering the impact of proposals on residential amenity against the clauses set out in the policy the council will consider a number of factors, including the type of use and the number of customers likely to attend, the level of public transport accessibility for customers either arriving or leaving the premises and the likely means of public or private transport that will be used by customers, the means of access to premises, the level of likely car parking demand on surrounding streets and the cumulative impact of ACE and recreation premises in the area,. These factors will also be taken into account by the council when considering whether particular uses should be subject to start times because of their impact on amenity. This policy is complemented by the Council’s Licensing policy.

Chapter 8 302 London Borough of Hammersmith and Fulham: UDP Alterations

CS3 PROFESSIONAL FOOTBALL GROUNDS

In considering any redevelopment proposal for all or part of an existing football ground, the Council will normally require the provision of suitable facilities to enable the continuation of professional football or other field- based spectator sports.

8.32 The Council wishes to retain professional football in the Borough, because it provides a major source of entertainment and contributes to the life of the community. The Council is only prepared to consider re-development proposals for professional football grounds if they make provision for continuation of professional football or other field-based spectator sports at that ground. If it can be demonstrated that professional football or other field-based spectator sports are no longer viable there, the redevelopment should include provision for other community service uses in accordance with other policies in this Chapter.

CS4 RETENTION OF OTHER COMMUNITY SERVICES USES

The Council will resist the loss of land or buildings that are used for the provision of community services - not included in policies CS1, CS2, CS2A and CS3 - where the loss would result in a reduction in the choice and accessibility of services available to Borough residents, and to the wider community that they serve.

Where buildings used for the provision of specific community service facilities become redundant for that purpose, the preferred use for the buildings or site will be for other community service uses for which there is a local need and which are appropriate to that location. Alternatively, in accordance with policy HO5 (iii), the Council may permit residential development but only for permanently available affordable housing, provided that the site is environmentally satisfactory and, where appropriate, subject to the replacement of community services uses.

In the absence of any viable proposals for the use of the whole site for appropriate community service uses and/or permanently available affordable housing then the preferred form of development will be a mix of such uses together with other uses. Only if this is not viable will development wholly for other uses be considered.

In cases where the redundant community use has provided substantial employment, the Council will, where appropriate, seek the replacement of employment opportunities as part of any development proposed, in accordance with policy E3.

8.33 Community service activities provide a wide range of services for the local community and are often a source of local jobs. The high cost of land and buildings in the Borough means that community uses are under pressure from more profitable uses (see Part 1 Justification) and if existing facilities are lost to other uses, the local community will lose an accessible facility. Once these sites are redeveloped for commercial uses, it is very difficult to find alternative sites with good accessibility, because these uses find it difficult to compete with higher land value uses.

Chapter 8 303 London Borough of Hammersmith and Fulham: UDP Alterations

8.34 Sites or buildings which are no longer required for a particular community service use may provide suitable locations for other uses in this category if they are well located in relation to the potential users. Land in community service use will tend to have a lower value than some other uses and so when it becomes vacant it is important to provide the opportunity for alternative uses of a similar type provided that they are appropriate to the location. The suitability of a replacement community service use must be considered in relation to, amongst other factors, the nature of the use and the accessibility of the site, especially by public transport or walking. In a residential area, for instance, the purpose of the policy is to consider whether there is a replacement use which will benefit the locality and which people can access by foot or public transport. It would not normally be desirable for a use that has been used mostly by people on foot to be replaced by one where customers mostly arrive by car from a wide area. This is because of the detrimental effect (measured in terms of noise, disturbances, pollution etc) that this would be likely to have on the environment.

8.35 The need for affordable housing is so great in this Borough that the Council may consider that this is a preferable use for a vacant community service use site or building, in accordance with policy HO5(iii). Depending on the size and location of the site it may be appropriate to make provision for a relevant replacement community service use as part of the development if there is a local need. 8.36 If a site is large and neither community service uses nor affordable housing would require the whole area alone or together then it would be appropriate to consider combining them with other uses. In this way it may still be possible for the objectives of the policy to be achieved on part of the site. If no scheme of this sort is viable then it would be appropriate for a development of other uses to be considered, in which case the normal policies of the plan would apply.

8.37 If the community service use has provided substantial employment then policy E3 would normally require some replacement employment opportunities when development takes place. The amount of floorspace for such uses will be considered in relation to the accessibility of the site by public transport and capacity of the highway network.

8.38 Apart from the need to retain any redundant buildings because they are either listed as buildings of special architectural or historic interest or on the Local Register of Buildings of Merit, it is usually preferable to keep redundant buildings because they can often provide cheaper accommodation for other community service uses.

CS5 PREMISES FOR COMMUNITY GROUPS

The Council will resist any loss of premises currently used by voluntary and community groups and will require their replacement in any redevelopment. It will also try to make available suitable local premises to such groups, including their provision as a community benefit in commercial developments, where this is appropriate.

8.39 The high cost of land and buildings in the Borough can easily result in community uses being squeezed out by pressure from more profitable uses. The contribution that a healthy and active voluntary sector can make to the quality of life of many Borough residents, especially disadvantaged people, is partly dependent upon adequate premises being available. The Council is therefore concerned to

Chapter 8 304 London Borough of Hammersmith and Fulham: UDP Alterations

safeguard existing premises used by voluntary and community groups, subject to changing needs and the provision of alternative premises.

8.40 There are very few resources to provide premises for community organisations, and the Council will therefore seek their provision as part of the community benefit that is expected from commercial developments.

CS6 RELIGIOUS MEETING PLACES

The Council will sympathetically consider proposals for new religious meeting places, particularly to meet local needs, subject to there being no adverse effects on the local environment, particularly in residential areas. Where buildings used for religious purposes become redundant for that purpose, the preferred alternative would be for other community service facilities for which demand exists. In the absence of any viable or appropriate preferred uses, alternatives will be considered in accordance with other policies of the Plan.

8.41 The Council, as part of its equal opportunities policy, will attempt to meet needs for religious meeting places from all sections of the Borough community, providing there is no adverse impact on the local environment. It wishes to conserve the Borough's limited stock of religious meeting places, and encourage their use for other community service uses if they are no longer required for religious purposes. From time to time the Council is approached by religious groups for information about the availability of suitable premises, and a particular stated need, for instance, is for at least two additional meeting places for use by the Congregation of Jehovah's Witnesses. Where there is no known appropriate identified need for religious uses then another community service use will be the preferred alternative because these uses often have similar locational needs and because they contribute to the vitality of the Borough and enhance its quality of life. If a non-community service use proves to be necessary then the Council will consider uses appropriate to the characteristics of the site, including its size and location, and the relevant policies of the plan. It is important that any use is appropriate to the site's level of accessibility by a range of means of transport. It is not desirable for facilities that will attract custom from a wide area to be located in areas that are poorly serviced by public transport.

CS7 PUBLIC CONVENIENCES

The Council will maintain and, when resources are available, expand, the provision of public conveniences. It will require the provision of replacement conveniences, including facilities for people with disabilities, where there is any loss of existing conveniences. It will seek the provision of conveniences as a planning benefit particularly within the town centres, by the riverside walk and at public transport interchanges and also in other parts of the Borough where none currently exists. Each convenience should include at least one cubicle exclusively for the use of people with disabilities.

8.42 Conveniences are required in or near all shopping centres or other areas heavily used by people. They are also an essential complementary feature of major development schemes, particularly in parts of the Borough where there is inadequate provision. They should be accessible to all potential users.

Chapter 8 305 London Borough of Hammersmith and Fulham: UDP Alterations

CS8 AVAILABILITY OF LAND/BUILDINGS FOR COMMUNITY SERVICES

The Council will seek to ensure the availability of land or buildings required for the provision of community service uses, by itself or others statutory agencies, where proposals are programmed for implementation within the period of this Plan. The Council will, when appropriate, assist those agencies to identify in identifying suitable sites that meet accessibility, environmental and other criteria outlined elsewhere in this Plan. It will also require adequate housing provision where significant additional housing demand will be generated by new community service uses.

8.43 The Council's primary role, in relation to the provision of community service uses by other statutory agencies, is as an enabling agency, to facilitate the provision of community services by those agencies. The Council will liase with the relevant community service providers and others regarding their strategies and needs. However In performing this role it the Council will be concerned that there should be provision of housing as part of large community service developments, such as hospital extensions or new further education establishments, in order to minimise extra pressures which may be brought about by such developments on the Borough's limited stock of low-cost housing, including hostel accommodation.

CS9 LEVEL OF COMMUNITY SERVICES PROVISION

The Council expects any changes in community services provision to maintain or improve the level and range of community services available to Borough residents. It will oppose any changes that would result in any reduction in the choice and accessibility of services available to the Borough community, particularly those in the target groups identified in Chapter 2, or to residents in other Boroughs who currently use community services in Hammersmith and Fulham.

8.44 The Council considers that the local community should have access to a range and level of community services sufficient to meet their needs. It is concerned that any proposals intended to reduce costs or increase efficiency should not result in any reduction or closure of convenient local facilities.

CS10 LOCAL COMMUNITY SERVICES

Proposals for the provision of general medical practitioner services and proposals for the provision of day care accommodation, creches, nurseries and playgroups/play space, will normally be given sympathetic consideration, providing they are compatible with the local environment, and a proven local need exists, subject to policy HO1 Prevention of the Loss of Existing Residential Accommodation. The Council will, where a local need exists, require the retention or replacement of the above facilities, if redevelopment occurs.

8.45 The services included in this Policy often need to be sited in locations that are readily accessible to the users of a specific service, particularly where it serves a particular local community, or a particular client group. They may also need to be sited in locations from which they might otherwise be excluded by other policies

Chapter 8 306 London Borough of Hammersmith and Fulham: UDP Alterations

included in this Plan. The Council when considering issues of local need will take into account corporate strategies such as the Community Care Plan and the Child Care Plan.

8.46 Day care accommodation is an integral part of overall community care strategies, whilst it also meets specific local needs. The Council wishes to encourage such initiatives, particularly in spheres such as child care, where a high level of need exists, whilst seeking to minimise any adverse environmental impacts. The suitability of a particular proposal for a particular building or site may depend upon a wide range of factors. Play space provision is dealt with in policies EN23-EN23B.

CS11 COMMUNITY SERVICES AND PLANNING BENEFITS

1994 Policy CS11 replaced by altered text shown below

Where proposals for development would create a direct need for additional community services and facilities or could contribute to the provision of social, economic and environmental benefits to the community as a whole, planning conditions may be imposed or developer contributions sought to secure their provision.

1994 para 8.47 replaced by altered text shown below

The nature and scale of development proposals may give rise to additional demands for community services. If it can be shown that existing service provision in the locality is demonstrably inadequate to accommodate the increased demand and no additional provision is envisaged, permission for development may be refused.

Policy CS11 is designed to enable the council to work together with developers to overcome such deficiencies and thus allow the development proposals to go ahead, and to enhance the quality of development. If the inadequacy of community service provision cannot be satisfactorily resolved through the imposition of planning conditions, then planning obligations may be sought from (or offered by) developers. The provision of community facilities in the form of small areas of open space, social, educational, recreational or sporting facilities may, for example, be appropriate in this respect, provided that any requirement for them accords with the provisions of Circular 11/95 and 1/97 or any successor circulars.

In addition to facilitating proposed developments in the borough by ensuring that developers contribute to the infrastructure and services that are required as a result of their proposals, the policy will also be used to ensure that developments contribute positively to the borough’s regeneration and sustainability objectives. Therefore, the council will look towards all proposals to make a positive contribution to the community as a whole.

Additional policies related to planning benefits include TC8 (town centres) and SP1 (site proposals).

Chapter 8 307 London Borough of Hammersmith and Fulham: UDP Alterations

CS12 DUAL USE OF COMMUNITY SERVICE FACILITIES

The Council considers that buildings and land used for community service uses, including sports/recreation centres, schools, and health care premises, should, where possible, be made available for dual use by the local community, particularly in areas where an unmet need exists.

8.48 Buildings and land used for community service uses constitute a major community resource and, to provide maximum benefits for the communities they serve, should be available, where needed, and where practicable management arrangements can be devised, for use by those communities, when not in use by their main users.

Chapter 8 308 London Borough of Hammersmith and Fulham: UDP Alterations

CHAPTER 9: SHOPPING

RESTATEMENT OF PART I POLICY G7: COMMUNITY SERVICES IN TOWN CENTRES AND ELSEWHERE: shopping outside town centres 311

JUSTIFICATION FOR PART 1 POLICY G7: 311

INTRODUCTION 311

Town Centres 312

Local Shopping 312

Other Shopping 313

ISSUES 313 Population Changes 313 Accessibility 313 Pressures on retail floorspace 313 Local shopping 314 Need for Improvement 314 New Shopping Developments 315

POLICY CONTEXT 315 National 315 Regional 318 Strategic/London-wide 318

STRATEGY 319

PART 2 SHOPPING POLICIES 319 SH1 RETENTION OF A CLASS FLOORSPACE 320 SH2 PRIME RETAIL FRONTAGES IN TOWN CENTRES 320 SH4 (part) OTHER RETAIL PREMISES IN TOWN CENTRES OUTSIDE PRIME RETAIL FRONTAGES AND KEY LOCAL SHOPPING CENTRES 320 SH3 KEY LOCAL SHOPPING CENTRES 320 SH3A SH4 (part) OTHER RETAIL PREMISES OUTSIDE TOWN CENTRES PRIME RETAIL FRONTAGES AND KEY LOCAL SHOPPING CENTRES 321 SH5 FLOORS ABOVE SHOPS AND OTHER PREMISES 323 SH6 TOWN CENTRE MARKETS 323 SH7 SHOP EXTENSIONS/IMPROVEMENTS WITHIN TOWN CENTRES AND ELSEWHERE 324 SH8 ACCESS TO AND WITHIN THE TOWN CENTRES 324 SH9 MAJOR NEW SHOPPING DEVELOPMENTS 325 SH9a NEW POLICY: NIGHT-TIME SHOPPING 326 SH10 FACILITIES WITHIN MAJOR SHOPPING SCHEMES 327

Chapter 9 309 London Borough of Hammersmith and Fulham: UDP Alterations

SH11 FOOD AND DRINK ESTABLISHMENTS 327 SH12 TEMPORARY MARKETS 329

APPENDIX 9.1 PRIME RETAIL FRONTAGES IN TOWN CENTRES (SH2) 330

APPENDIX 9.2 KEY LOCAL SHOPPING CENTRES (SH3) 331

APPENDIX 9.3 PROTECTED SHOPPING PARADES AND CLUSTERS (SH4A) 333

Chapter 9 310 London Borough of Hammersmith and Fulham: UDP Alterations

CHAPTER 9. SHOPPING

RESTATEMENT OF PART I POLICY G7: COMMUNITY SERVICES IN TOWN CENTRES AND ELSEWHERE: SHOPPING OUTSIDE TOWN CENTRES

The Council will seek an adequate range of convenient facilities available to all sections of the community for shopping, recreation and entertainment, the arts, culture, health, education and other purposes. SH1, SH4, SH7, SH10, SH11, SH12

G7A: SHOPPING OUTSIDE TOWN CENTRES

An adequate range of convenient and environmentally sustainable shopping facilities available to all sections of the community will be sought.

In particular, this will be achieved by: a) Resisting shopping facilities that are likely to be major generators of transport demand, and which are not supported by evidence of demonstrable need and a sequential approach to site selection, and that are not accessible by a variety of means of transport, or are likely to have a serious adverse effect on the vitality and viability of the town centres, and b) Seeking to retain and improve shopping for everyday needs in key local shopping centres and other locations.

JUSTIFICATION FOR PART 1 POLICY G7:

INTRODUCTION

9.1 Shopping provision in the Borough comprises the three major centres of Hammersmith, Shepherd's Bush, and Fulham, and a network of twenty nineteen key local shopping centres (Fig. 9.1) complemented by a large number of smaller shopping parades and individual shops. This existing structure has recently been supplemented by a new food superstores in Sands End and at Brook Green, whilst

Chapter 9 311 London Borough of Hammersmith and Fulham: UDP Alterations

the proposed schemes for Site 36 in Shepherd's Bush and Site D fulham Broadway and the Osram site at Brook Green (due to open in Autumn 1995) will substantially increase food and non-food shopping facilities in the northern and central parts of the Borough.

9.2 The Borough's shopping network is constantly evolving to respond to as a result of changing consumer demands and changing trends in retailing. Government emphasis on the importance of town centres as opposed to non-town centre locations for shopping, the growth in 24 hour shopping, the development of new shopping facilities at town centre transport nodes, and initiatives such as internet shopping and home delivery services are some of the This process of evolution raises many issues that need to be resolved considered if the Borough is to maintain and improve the wide range of shopping facilities readily accessible to all sections of the community.

Town Centres 9.3 The town centres provide the most accessible locations for both existing and new shopping facilities that can be used by all sections of the community, including car-users and non car-users. They meet both major food and comparison goods shopping needs for wide catchment areas of varying population size and geographical extent for different centres, sometimes including parts of adjoining Boroughs. They sometimes serve much larger catchment areas for specialist retail activities, for example the street markets. They also meet local shopping needs for people living or working in or near individual the town centres and especially for the less mobile members of the community. The high level of retail activity also helps to attract many other types of activities which contribute to the vitality and viability of the centres (See also paragraphs 3.3-3.11)

9.4 – 9.12. All text moved to Town Centres chapter.

Local Shopping 9.13 Previous development plans have identified a network of twenty nineteen smaller key local shopping centres, shown on the Proposals Map and specified in Appendix 9.2. These centres complement the range of goods and services provided in the three town centres, and are characterised by the presence of shops and services such as bakers, butchers, grocers, chemists, newsagents and sub-post offices.

9.14 Key local shopping centres are of varying sizes, ranging from individual parades, such as Bloemfontein Road, with 11 shops, to Fulham Road, with more than 50 shops. Most of these centres include some A2 and A3 uses, and other uses such as estate agents, restaurants and cafes, and community services. The catchment areas of these centres vary, and In addition some centres are either on or close to the public transport network making them more accessible than other centres.

9.15 Despite the variation between the different centres, there are common issues which affect all the centres to a greater or lesser extent, including pressures for premises to change from A1 (shopping) use to A2 and A3 use (for example cafes and bars), and for the introduction of non-A Class uses. The extent to which these pressures threaten the existing function of individual centres varies, with some being more capable of accommodating change than others.

Chapter 9 312 London Borough of Hammersmith and Fulham: UDP Alterations

Other Shopping 9.16 More than half of the Borough's shops are to be found outside of the town centres and key local shopping centres. These shops range from individual "corner shops" to small parades. They often meet important local needs, particularly for residents with limited mobility who may be unable to travel further afield for their shopping. The pressures affecting key local shopping centres are also experienced by these other shopping facilities. There is a need to increase protection of those parades and premises which continue to provide a local shopping function.

ISSUES

Population Changes 9.17 Demographic, economic and social changes are major influences on the level and nature of consumer demand. They raise important issues for the continued prosperity of the Borough's shopping facilities. Higher disposable incomes and higher car ownership levels mean that many local people may now buy a wider range of goods and services. They may be whilst they are also able to travel to whichever shopping centre they consider to be most attractive and which best meets their needs, rather than their nearest centre, or they may be able to shop by internet or order a home delivery service. Consequently, a major issue here is the need to ensure that all the Borough's shopping centres are at least as attractive as possible and can competeing successfully against centres in adjoining London Boroughs and other shopping initiatives.

Accessibility 9.18 Good accessibility is essential for the continued prosperity of the Borough's shopping facilities, so that they are readily accessible to all sections of the local community, particularly non-car users and people with restricted mobility.

9.19 People must be able to reach shopping facilities safely, easily, and quickly, so it is necessary to minimise levels of traffic congestion, some of which is susceptible to action at local level, whilst some requires London-wide or national action. Equally important, it is necessary that shops are readily accessible to delivery and service vehicles, otherwise retailers are likely to consider moving elsewhere to more accessible locations. Resolving this issue will includes the provision of adequate off- street servicing and related measures.

9.20 There is a need to ensure high levels of accessibility once people have reached a shopping centre, including good public transport interchange facilities, ample environmentally sustainable levels of car parking, and a shopper pedestrian- friendly environment. Such considerations are particularly important for wheelchair users, people with young children and others with limited personal mobility.

Pressures on retail floorspace 9.21 There is a continuing demand for the introduction of non-retail uses into shopping areas. Recent trends including the rise in land and property values in the Borough, the effects of the Uniform Business Rate and the down-turn in retail trade, have all affected seen a fall in the demand for retail units in all but the most sought after shopping frontages, whilst demand for non-retail uses, such as offices, restaurants, and financial medical services and residential has remained steady or increased. seem to be less affected. In addition, existing shopping facilities may

Chapter 9 313 London Borough of Hammersmith and Fulham: UDP Alterations

become re-orientated towards the needs of office employers and workers, leading to a reduction in the availability of basic shopping facilities for the local community, accentuated by existing shops being forced to close or move elsewhere, as a result of increases in land values and rents. The loss of small shop units may have a particularly adverse effect on different groups within the community, for example people with mobility difficulties, the elderly and women ethnic minority communities who often rely on such shops for their specialist food and other everyday needs. The loss of such local shops may will force members of these communities to travel further to alternative shops elsewhere.

9.22 Pressures for change of use within the retail/consumer sector, particularly from 'convenience goods'/'comparison goods' floorspace to other forms of retail floorspace, including specialist shops, and services, may also result in a loss of shopping facilities for local communities. These new retail uses often provide high value goods and services, and can afford higher rents than ordinary retailers, as a result of well as sustaining a high level of turnover by attracting consumers from wide catchment areas. Much of this change of use is not subject to planning control because of the provisions of the Use Classes Order and the General Development Order and is difficult to monitor.

9.23 These pressures affect all of the Borough's shopping areas, but to varying extents in different areas. There is a need both to preserve existing shopping facilities, and to accommodate these new retail uses where this can be done without adverse impacts on the former, particularly existing shops serving any of the target groups identified in Chapter 2.

Local shopping 9.24 Large retail chains are able to supply a wider range of goods, at lower prices, in town centre and other locations that are readily accessible to large catchment areas. However, the less mobile members of the community, such as wheelchair users and people with prams/pushchairs, may be unable to get to the town centres and remain dependent upon local shops, particularly in key local shopping centres, for food and other everyday shopping needs.

9.25 Local shopping facilities are also under particular pressure from A3 uses (restaurants, etc.). It is recognised The Council recognises the importance to the local community of that there is a need for restaurants, cafes and take-aways, and that they provide a valuable service and significant employment opportunities. However, such uses restaurants and take-aways can generate major problems in a local area, particularly if they are close to residential areas, and/or there are a number of restaurants concentrated in a particular area. These problems include pressure on scarce on-street parking space, congestion and noise, particularly at night. Also, despite environmental health controls, A3 uses restaurants do sometimes generate unpleasant smells and noise for surrounding residents, and unacceptable refuse and litter problems - the latter particularly in the case of take- aways.

Need for Improvement 9.26 Much of the Borough's retail floorspace has developed in an ad hoc way along main roads and is in need of improvement and modernisation to meet the changing operational needs and consumer expectations of the twenty first century. Such action can be expensive and requires long term commitment from landlords and businesses. In Shepherds Bush town centre, SRB and Section 106 funding has

Chapter 9 314 London Borough of Hammersmith and Fulham: UDP Alterations

been secured to help assist in the upgrade of the centre, whilst Fulham town centre will benefit from another SRB scheme approved in 1999. Urban Programme funding is no longer available for this purpose, and other financial pressures, such as the Uniform Business Rate, mean that Large-scale shopping improvement and modernisation schemes are rarely an economic proposition outside of the town centres in areas such as Hammersmith and Fulham, unless significant amounts of more profitable floorspace can be included. In Fulham town centre, shopping improvements will result from the Fulham Broadway scheme (Site D) and the Fulham Island Site (Site E), whilst the White City Centre should have benefits for Shepherds Bush town centre, and Hammersmith town centre shopping will respond to the proposed mixed use developments on Sites 27, F and G. This often involves the provision of larger shop units, with better access and service for customers, employees, suppliers and other users, together with supporting infrastructure, including car parking, childcare provision and other amenities, often in the form of shopping precincts of varying sizes. Outside of town centres there are however limited opportunities for funding packages to improve and modernise premises and the future of these centres will be particularly subject to individual shopkeepers decisions and the application of UDP policy. to make significant additions to the retail floorspace in this Borough.

New Shopping Developments 9.27 The further provision of large new shopping developments in the Borough's three town centres, apart from the proposed White City Centre scheme at Shepherd's Bush (Site 36), and Fulham Broadway development (Site D) and Site 27 in Hammersmith Centre, is difficult because of lack of space. There is however continuing pressure for the development of further shopping schemes in out of centre locations. Out-of-centre developments both within and outside the Borough compete with the existing centres and may undermine them by taking trade away and limiting the scope for further investment in the town centres.

9.28 Equally important, major new retailing developments outside town centres are often not readily accessible to non-car users, because they are not located in residential areas, and often have poor public transport links. In addition some of these possible new retail developments, such as DIY warehouses and garden centres, depend upon customers being able to provide their own transport, particularly for bulky purchases.

POLICY CONTEXT

National 9.29 The Council’s has only limited powers to regulate shopping provision in the Borough are subject to the Planning Policy Guidance Note 6 Town Centres and Retail Developments (PPG6), and the Town and Country Planning (Use Classes) Order 1987 and the General Development Order 1995. It can exercise some degree of control over the amount and location of new shopping facilities, and the change of use of existing shops from retail to non-retail uses, but has only very limited control over changes of use within the retail sector.

PPG6 Town Centres and Retail Development (1996) states in para. 32 1.1 that:

"It is not the function of the planning system to preserve existing commercial interests or to inhibit competition between retailers or between methods of retailing.

Chapter 9 315 London Borough of Hammersmith and Fulham: UDP Alterations

Nor is it the function of the local planning authority to regulate changes in the supply of retail services, unless interests of acknowledged importance would be adversely affected".

“The Government’s objectives are: to sustain and enhance the vitality and viability of town centres to focus development, especially retail development, in locations where the proximity of business facilitates competition from which all consumers are able to benefit and maximises the opportunity to use means of transport other than the car; to maintain an efficient, competitive and innovative retail sector; to ensure the availability of a wide range of shops ...... and facilities to which people have easy access by a choice of means of transport”

9.30 PPG6 sets out the Government's objectives for retail development. It states in paragraph 20 1.10 that:

"Retailing is more than simply a key function of a town centre. Shopping whether in the largest town centre or in the smallest village shop, or in different types of shop elsewhere, is a necessary feature in everyone's life" “In drawing up their development plans, local planning authorities should, after considering the need for new development, adopt a sequential approach to selecting sites for new retail development”.

The PPG continues in paragraph 21 1.11 by stating that:

"Town centres can offer a range, quality and convenience of services and activities that are attractive to the local population .... (but the Government also considers that) .... out-of-centre retail developments can also offer benefits and opportunities that consumers want. But their scale, type and location should not be such as to undermine the vitality and viability of those town centres that would otherwise serve the community well."

“Adopting a sequential approach means that first preference should be for town centre sites, where suitable sites or buildings suitable for conversion are available, followed by edge-of-centre sites, district and local centres and only then out-of- centre sites in locations that are accessible by a choice of means of transport”.

The PPG offers further guidance for local planning authorities drafting plan policies or considering planning applications outside town centres, and goes on to state, in para. 33:

".... authorities should take account of the possible impact (including the cumulative impact with other recent or proposed retail developments) on the vitality and viability of any nearby town centre as a whole, as well as of other factors ...."

9.31 The Government is concerned that shopping facilities are available to all sections of the community and states in PPG13 Transport (1994) that:

"Shopping should be promoted in existing centres which are more likely to offer a choice of access, particularly for those without the use of a car".

Chapter 9 316 London Borough of Hammersmith and Fulham: UDP Alterations

In paragraph 28 3.18 of PPG6 the Government notes states that in addition to town centres and out-of-centre retail developments meeting consumer demands:

"Local, convenience shops have significant economic and social functions; they offer a particularly important and convenient service for those who are less mobile, especially elderly and disabled people, families with small children, and those without access to a car."

“Local authorities should encourage, through their planning policies and actions, a wide range of facilities in district and local centres, consistent with the scale and function of the centre, to meet people’s day-to-day needs, so reducing the need to travel. The need for local shops is as important in urban areas as it is in rural areas for reducing the dependence on the car”.

In paragraph 3.19 the PPG states:

“Local planning authorities should encourage appropriately- sized, local supermarkets and seek to retain post offices and pharmacies in existing district and local centres”.

In para. 38 of PPG6 the Government adds that: "retail development should be sited where it is likely to be accessible by a choice of means of transport, and to encourage economy in fuel consumption", whilst PPG13 states that local authorities should:

"where suitable central locations are not available for larger retail development, seek edge-of-centre sites, close enough to be readily accessible by foot from the centre and which can be served by a variety of means of transport".

9.32 PPG6 gives specific guidance to the preparation of UDPs, including guidance about service uses. This guidance is reflected particularly in this Plan's Part 2 policies relating to non-retail uses in prime retail frontages and key local shopping centres. In particular Annex B of the PPG states that:

"Plans may also distinguish between primary and secondary frontages in town centres and consider their relative importance to the character of the centre. While primary frontages may be restricted to a high proportion of retail uses - in particular those in Class A1 of the Use Classes Order - there should be scope for more flexibility of use in secondary frontages; in those areas diversification has most to contribute."

In paragraph 2.24, the PPG discusses the Use Classes Order and the General Development Order. These Orders permit certain changes of use without the need for planning permission. However in paragraph 2.25 the PPG states that:

“Changes of use, whether in town, district or local centres, can however sometimes create new concentrations of single uses, such as restaurants and take-away food outlets, where the problems can cause local problems. Such proposals should be assessed not only on their positive contribution to diversification, but also on the cumulative effects on such matters as loss of retail outlets, traffic, parking and local residential amenity”.

Chapter 9 317 London Borough of Hammersmith and Fulham: UDP Alterations

Regional 9.33 A New Strategy for the South-East: SERPLAN (1990) proposes (2.78) that new retail investment should be:

"targeted particularly at defined 'core' centres which need to maintain or improve their position in the hierarchy".

Regional Planning Guidance for the South East: RPG9 (1994 March 2001) echoes national guidance and states that larger town centres should be the focus for major retail developments, but also notes the importance of smaller town centres, district centres and local and neighbourhood centres.

"Wherever possible retail development should be located within existing town and district centres. In some exceptional cases, such as certain market towns and historic cities, this may not be possible or desirable. In those circumstances where the scope for further retailing within existing centres is limited, edge of town centre sites with good access to public transport should be sought. Where this is not possible, alternative sites within the urban area may be acceptable, provided they would not adversely affect the vitality and viability of town and district centres, are accessible by a choice of means of transport including public transport, and accord with policies to reduce the need to travel, to regenerate the urban areas, and to protect the countryside."

Strategic/London-wide 9.34 Strategic Guidance for London Planning Authorities (RPG3) identifies a hierarchy of different types of centre in London which have been identified by LPAC. It states (paragraph 72 5.10) that amongst other things: "Existing town centres should continue to be the main focus for the provision of shopping facilities. Planning policies can help to promote the modernisation and refurbishment of town centres ... in ways that improve the environment and enhance the attractiveness of the centre...... Despite greatly increased car ownership not every household has the use of a car; many depend on public transport or walking. The needs of such shoppers should be met by shops which are easily accessible."

“Boroughs should: encourage the provision of appropriate retailing on sites in town centres or, if no sites are available, on sites at the edge of town centres; promote local centres which contain convenient shops catering for local needs and the less mobile”.

9.35 LPAC's 1994 Advice on Strategic Planning Guidance for London in its 1996 Supplementary Advice on Town Centres identified Hammersmith and Fulham as a strategic Major centres where consolidation rather than major growth is considered to be appropriate, whilst the Borough's other town centres are identified and Shepherds Bush as a District town centres. LPAC states in 1994 Advice on Strategic Planning Guidance for London that:

"To support access for all the community to a range of shopping opportunities, out- of-centre development should be permitted only in exceptional circumstances, where it does not compromise the vitality and viability of existing centres and when it meets

Chapter 9 318 London Borough of Hammersmith and Fulham: UDP Alterations

planning criteria which address national and metropolitan concerns such as accessibility for all".

LPAC recommended that:

"Boroughs should maximise the choice and opportunities for all shoppers to meet their needs by co-ordinating, in liaison with other Boroughs, the network of town centres as the principal focus for new retail development and investment".

STRATEGY

9.36 It is clear that Government Guidance in the form of PPG6 and PPG13 supports the maintenance of existing shopping centres, including local centres and shops which provide local convenience shopping, which offer a choice of easy access to convenience shopping by a choice of means of transport, particularly for those without the use of a private car. This strategy is also intended to assist and which encourage economy in fuel consumption and help meet objectives for improving air quality. The Council's broad approach in the UDP supports this strategy and includes is, therefore, to pursue policies which seek to sustain stress a range of accessible shopping provision based on town centres, with protection of other local shops, whilst at the same time reducing the encouraging walking, cycling and public transport access to facilities and reducing the need to travel, especially by car .environmental impact of transport. The Council will also pursue programmes to tackle environmental and transport issues facing the centres.

9.37 The town centres in the Borough will continue to be Hammersmith, Fulham and Shepherd's Bush. In the case of Hammersmith it is not envisaged that there will be a major further increase in shopping floorspace. The Council agrees with LPAC that the approach should be one of consolidating the centre's position and dealing with environmental and traffic problems. Shepherd's Bush will have a much enhanced role as a result of both the White City SRB which will be used to regenerate the centre, and if the currently proposed development for Site 36 goes ahead which will add greatly to the centre’s shopping facilities extend the present town centre. Fulham Centre should will continue to provide a range of town centre shopping, despite recent losses of larger retailers and will benefit from proposed initiatives in the area, including the Fulham Broadway development.

9.38 The policies to support town centres and other shopping centres include protection of existing shopping accommodation and the careful consideration of major out-of-centre schemes that could undermine their vitality and viability as centres, in accordance with PPG6. Existing Policies will to protect prime retail frontage in the town centres will be continued in order to retain the retail function while allowing some measure of other service uses, including a less restrictive policy towards restaurants In key local shopping centres and other identified parades and clusters there will be controls over the proportion of non-shopping uses.

PART 2 SHOPPING POLICIES

Chapter 9 319 London Borough of Hammersmith and Fulham: UDP Alterations

SH1 RETENTION OF A CLASS FLOORSPACE

The Council will seek to retain and improve accommodation suitable for A class uses. In town centres and key local centres, where redevelopment is necessary, replacement A Class floorspace will normally be required. Outside these centres the Council would will normally require replacement A Class floorspace, unless there is satisfactory alternative shopping provision. Replacement A Class floorspace will be in accordance with other policies.

9.39 The retention of existing A Class floorspace is necessary in order to ensure a supply of premises serving existing shopping needs, including, where appropriate, the needs of local workers, tourists, or other visitors. It is important that individual premises maintain sufficient floorspace to accommodate a reasonable variety of A class activities. The Council wishes to ensure that new investment is directed primarily towards the modernisation and replacement of existing floorspace, particularly in the three town centres. At present resources are not available from SRB monies and Section 106 Agreements the Council to assist in environmental and other improvement schemes in the town centres, and it is not clear when the Council will be able to call upon funding to help businesses improve their premises. There may be circumstances where A Class floorspace, for example ancillary storage, is surplus to requirements and there is pressure to convert to alternative uses. However, in these situations the Council will require evidence that neither the Council’s shopping policies nor the long term viability of the retail units that remain will be prejudiced.

SH2 PRIME RETAIL FRONTAGES IN TOWN CENTRES

The Council has defined 'prime retail frontages' in the three town centres, as shown on the Proposals Map and in Appendix 9.1. Only those uses within Class A1 of the Town and Country Planning (Use Classes) Order 1987 will normally be allowed to occupy space anywhere on the ground floor of prime retail frontages,.

The specific policies and reasoned justification are set out in theTown Centres chapter.

SH4 (PART) OTHER RETAIL PREMISES IN TOWN CENTRES OUTSIDE PRIME RETAIL FRONTAGES AND KEY LOCAL SHOPPING CENTRES

That part of policy SH4 dealing with town centres and paragraph 9.46 have been deleted and removed to Town Centres chapter.

SH3 KEY LOCAL SHOPPING CENTRES

The Council has designated Key Local Shopping Centres (shown on the proposals map and listed in Appendix 9.2) to provide accessible shopping and service facilities for their locality. In these centres, uses within Class A2 or A3 will be permitted on the following basis: a) no more than one third of the length of the key local shopping centre

Chapter 9 320 London Borough of Hammersmith and Fulham: UDP Alterations

frontage as a whole, and no more than one third of the frontage in an individual street block, should be occupied by non-Class A1 uses; b) no more than 20% of the length of an individual street block should be in food and drink use (A3 Class); b c) provision of a shop style fascia, with an appropriate window display, at ground floor level. Other uses will be permitted subject to a), b) and c) and provided that they are complementary to the function of the centre.

In all calculations of the proportion of the frontage of street blocks in Class A1 and non-A1 uses, the Council will take into account unimplemented planning permissions for changes of use.

9.44 Key local shopping centres are necessary in order to ensure that convenience goods, and some everyday services, are readily accessible to all sections of the community, particularly less mobile members of the community. Within key local shopping centres the Council wishes to give priority to the provision of convenience shopping and basic local services, which could include health facilities, the loss of which would cause hardship or inconvenience, particularly for less mobile members of the community. In addition, by providing facilities at this level, the need for people to use cars to meet their day-to-day needs will be reduced.

9.45 The Council accepts that many uses within Classes A2, and A3 and certain other non-Class A uses are complementary to the retail function and can enhance the vitality and viability of key local shopping centres. However, more than about one third of the length of the frontage in non-retail use is considered to be unacceptable if the retail function of the centres is to be maintained. The Council's 1992 Land Use Survey reveals that there is potential in all the key local shopping centres to accommodate some additional Class A2 and Class A3 uses within many frontages if a proportion of two-thirds being in retail use is employed. However, the situation can change and the Council will consider carefully the situation of individual centres when considering changes of use (Supplementary Planning Guidance on each centre will be prepared).

9.45a Pressures for Class A3 uses in the Borough have increased over recent years. While the Council recognises that such uses can contribute to the vitality and viability of centres, it also recognises that such uses can also have a detrimental effect on the environment and nearby residents through, for example, parking pressures, ambient noise levels and smells from cooking food. A concentration of such uses would have a greater impact on adjoining residential properties. The Council would not wish to see more than 20% of an individual street block to be in Class A3 use.

SH3A SH4 (PART) OTHER RETAIL PREMISES OUTSIDE TOWN CENTRES PRIME RETAIL FRONTAGES AND KEY LOCAL SHOPPING CENTRES

1. In the retail parades and clusters shown in Appendix 9.3 and shown on the Proposals Map no more than 50% of the total length of the frontage of the parade or cluster will be permitted to change to non-retail use (non-A1 Use Class). In addition, no more than 33% of the length of frontage of the parade

Chapter 9 321 London Borough of Hammersmith and Fulham: UDP Alterations

or cluster will be permitted to change to food and drink use (A3 Class). Residential use will not be permitted on the ground floor.

2. In retail premises outside town centres, and key local shopping centres and protected parades and clusters shown in Appendix 9.3, the Council will apply the same quota figures for non-retail use and food and drink use as applied to protected parades and clusters, but may also permit residential use where not normally permit a change from A1 Use to A2 or A3 Use when it would not result in a demonstrable shortage of A1 Use Class accommodation in the locality. Changes out of A Class Use to other non-A Class uses will be considered on the same basis.

3. Corner shops are important for meeting local needs and will be protected for continued retail use (A1 Class). Changes of use from retail use will not be permitted where there is a shortage of alternative shopping (where town centres, key local shopping centres and protected parades and clusters are not within 300 metres).

In all calculations of the proportion of the frontage of street blocks in Class A1 and non-A1 uses, the Council will take into account unimplemented planning permissions for changes of use.

9.47 The pattern of local shopping provision varies throughout the Borough with some areas having more accessible facilities than others. In those areas with few local shops it is particularly important that changes of use do not occur which would result in a demonstrable shortage of premises for A1 uses and in the consequent reduction of the quality of life for the less mobile and those without access to a car. In addition, such changes will also give rise to the possibility of car owners increasing the use of their cars for shopping trips, thereby counteracting other policies trying to reduce the environmental impact of the private car. Because A2 and A3 uses can also provide a wide range of facilities at the local level the Council also wishes to protect accommodation for these uses outside town centres and key local shopping centres.

9.47a A number of significant parades and clusters of shops can be found outside town centres and key local shopping centres and have been identified in Appendix 9.3. The number of premises in such locations varies considerably. Although not all of these clusters are primarily concerned with the provision of goods and services for the local community (eg day to day needs, convenience goods etc), they do provide a variety of shops and services, including health facilities, to local residents, which are especially valuable to those who are less mobile. It is important to preserve the retail function of these parades and clusters

9.47b As with key local shopping centres, the Council accepts that certain non- Class A1 uses are complimentary to the retail function of these parades and clusters. However, the number of non-Class A1 uses needs to be controlled to ensure that the retail function is not undermined. It is considered that the proportion of non-Class A1 uses should not exceed 50% of the frontage of the entire centre, thereby retaining a substantial proportion of retail whilst permitting other uses. Residential use within these protected parades and clusters will not be permitted because of the potential for undermining the retail function.

9.47c In recent years there has been a growth in the number of food and drink establishments within the Borough, including protected parades and clusters. The

Chapter 9 322 London Borough of Hammersmith and Fulham: UDP Alterations

Council recognises that there is a demand for Class A3 uses and that such uses may be complimentary to the retail function of these centres. However, it is considered that concentrations of Class A3 uses could undermine the retail function of these centres and have a detrimental impact on the environment. Therefore no more than 1/3 of the length of these parades and clusters should be occupied by Class A3 uses.

9.47d Undesignated retail premises outside town centres, key local shopping centres and protected parades and clusters also provide important goods and services for local residents. The Council does not wish to see a significant reduction in the stock of Class A1 premises within the Borough. However, some non-Class A1 uses may be acceptable including residential use, and subject to the 50% and 1/3 quotas mentioned above for protected parades and clusters. The quotas will normally be applied to the relevant street block, but the Council will also take into reasonable account any shopping provision in adjacent street blocks.

9.47e Individual corner shops can be very important and highly valued by residents. Any loss of corner shops providing local goods and services will especially impact upon the quality of life of some less mobile shoppers. Although the Use Classes Order means that shops can change from one retail use to another without the need for planning permission, the Council will encourage the retention local uses where change would result in a shortage of shops in the locality and mean that people would not be within 300 metres of alternative shopping.

In retail premises outside town centres and key local centres, the Council will not normally permit a change from A1 Use to A2 or A3 Use when it would result in a demonstrable shortage of A1 Use Class accommodation in the locality. Changes out of A Class Use will be considered on the same basis.

SH5 FLOORS ABOVE SHOPS AND OTHER PREMISES

In any development affecting ground floor premises which are used independently of any floors above, the Council will normally seek the retention, or provision, of independent access for any upper floors capable of viable independent use.

9.48 The upper floors of shop type premises are provide accommodation for a variety of uses, but are sometimes often vacant or underused. This represents the waste of a valuable resource which could otherwise be put to beneficial use. The Council wishes to ensure that access to upper floors is maintained and considers that the use or re-use of this accommodation for small offices and residential is particularly appropriate. Residential This type of accommodation in these premises is likely to be available at lower cost than other forms of dwelling and is convenient for those without access to private cars. In town centres residential it will also provide diversification and activity in the evenings.

SH6 TOWN CENTRE MARKETS

This policy and reasoned justification is set out in the Town Centres chapter.

Chapter 9 323 London Borough of Hammersmith and Fulham: UDP Alterations

SH7 SHOP EXTENSIONS/IMPROVEMENTS WITHIN TOWN CENTRES AND ELSEWHERE

Proposals for extension or improvement of existing retail premises, for retail uses, up to 930 sq.m (10,000 sq.ft), will normally be given favourable consideration, provided that: a) there will be no adverse impact on the vitality and viability of existing town centres and key local shopping centres; ab) the scale and nature of the proposed retail use will not cause any significant demonstrable harm to the locality; bc) there are no adverse impacts on local environmental and residential amenities; cd) there will be no unacceptable impact on local traffic conditions.

Any significant floorspace extensions will be considered against policy SH9.

9.50 The Council seeks to encourage retail development to meet the needs of the local community. It will give favourable consideration to minor extensions and improvements to existing retail premises where this will meet a need for improved facilities in the locality. up to 930sq.m (10,000 sq.ft), However, it is important that developments are located in areas which are more likely to offer a choice of access, particularly by public transport, because developments in these areas are less likely to generate unacceptable traffic levels/congestion and have adverse impacts on the local environment, such as an unacceptable increase in CO2 and other polluting emissions. Major extensions for retail developments over 2500sqm gross floorspace have the potential to impact on the existing shopping hierarchy, and the Council will apply the criteria set out in policy SH9 to assess their acceptability. Occasionally it may be necessary for smaller developments, such as those that are likely to have a large impact on a centre, depending on the relative size and nature of the development in relation to the centre, to be assessed against the SH9 criteria. Any proposal will also be considered against relevant Environmental and Transportation Policies concerned with environmental and transport impact.

SH8 ACCESS TO AND WITHIN THE TOWN CENTRES

The Council will seek to enhance the attractiveness of the town centres, by provision of adequate short-stay parking for shoppers in controlled parking and off-street parking schemes, promoting better facilities within the centres for pedestrians and people with disabilities, and seeking improvements in servicing for retail premises. The Council will also seek to improve access to the town centres, by pressing London Regional Transport to improve public transport services.

9.51 The attractiveness of the town centres depends largely upon them being accessible to their catchment areas. Accessibility can be maintained and improved by better public transport services, adequate facilities for people with disabilities, and sufficient car parking.

Chapter 9 324 London Borough of Hammersmith and Fulham: UDP Alterations

9.52 Improvements in servicing are necessary to minimise inconvenience and congestion caused to pedestrians and other road users by on-street delivery of goods.

SH9 MAJOR NEW SHOPPING DEVELOPMENTS

1994 Policy SH9 replaced by altered text shown below

Major new shopping developments will be permitted outside the town centres only if there is a demonstrable quantitative and qualitative need for additional retail facilities and no town centre site or building is suitable and available. If no edge-of-centre or, failing that, key local shopping centre site or building is suitable and available, permission will be granted for an out-of-centre site or building only if it: a) Would not prejudice the retail strategy of the plan; and b) Is accessible by a choice of means of transport; and c) Would not undermine the vitality or viability of nearby town centres, whether individually or cumulatively with other recently completed or permitted retail developments within their respective catchment areas.

9.53 The Council aims to provide for a range of shopping opportunities for borough residents and workers. Major new shopping proposals, such as for developments over 2500 sq m gross floorspace, including enclosed shopping centres, groups of retail warehouses, or food superstores, and occasionally smaller developments depending on the nature of the development and the relationship with existing shopping facilities, can have a very significant effect on the shopping hierarchy, shopping patterns and traffic generation. The three town centres should continue to be the main foci for the provision of shopping in the Borough, as well as a range of other activities and services, because they are more accessible by a variety of means of transport especially public transport. This is important for those without the use of a private car; and it should also help limit the need for shoppers to use cars which is beneficial for environmental reasons. Site 27, the Hammersmith and City Line Station car park in Hammersmith town centre is proposed for new shopping as part of a mixed use scheme.

9.54 The Council considers that, subject to the provision of retail in the site proposals identified in the UDP, it will be necessary for developers wanting to build a major new retail development on a site not identified for retail in the UDP to be supported by evidence of demonstrable quantitative and qualitative need.(see also policy TC1) This requirement is in accordance with Government policy. Where a proposed new major shopping development can cannot be accommodated within a town centre the application will need to be accompanied by evidence that the sequential approach as set out in PPG6 has been applied properly.preferred alternative would be an edge-of-centre site if one is available. The Plan proposes, for instance, a major shopping proposal on Site 36 next to Shepherds Bush town centre. However, Development on any such site not within a town centre will also need to show that alternative development formats which fit local circumstances, for example the same goods being sold from a smaller type of store in a town centre, are not suitable. In addition all applications must have be supported by evidence on their accessibility by a choice of means of transport, assessing the proportion of customers likely to arrive by different means, and the likely changes in travel

Chapter 9 325 London Borough of Hammersmith and Fulham: UDP Alterations

patterns over the catchment area. good linkages with the town centre so that it is readily accessible on foot by people using the town centre and can be included conveniently within a shopping trip. It should also have good access from the town centre public transport services facilities. In this way the vitality and viability of the existing town centre can be enhanced by the general increase in trade caused by the new shopping development.

9.55 The Council recognises that in a borough like Hammersmith and Fulham there is a limited availability of suitable town centre or edge-of-centre sites and developers may propose developments that are not in or next to town centres. Any such site must, amongst other factors, have an appropriate level of accessibility, especially by public transport, in order to avoid an unacceptable increase in road traffic on the local road network. In addition, any major edge or out-of- centre scheme will need to be assessed to ensure that it does not have a serious adverse effect on the vitality and viability of any town centre in this Borough or elsewhere. A serious effect might occur if there was likely to be a large diversion of trade from a town centre or if a shopping development on a desirable town centre or edge-of- centre site (such as Sites 27 or 36) was prejudiced.

9.56 In considering the approach to the location of new shopping, the Council will also have has also had regard to other relevant policies in the Environment, Transport and Accessibility and Employment chapters in the UDP. the need to make provision for other land uses in the Borough. For this reason an employment zone site would only be acceptable if the proposed shopping development would not lead to a scarcity of land available to meet the potential demand for the B Class Uses appropriate to that zone (in accordance with PPG6), and if it would produce a satisfactory level of employment (see policy E1(f)).

9.57 Any form of major shopping development must be acceptable in terms of the impact on the local environment. This will include traffic generation and the design and appearance of buildings.

SH9A NEW POLICY: NIGHT-TIME SHOPPING

Planning permissions for class a1 development, including new development, changes of use and extensions, will be subject to conditions controlling hours of operation, as follows: a) Except in predominantly commercial areas, such as parts of town centres – premises shall not be open to customers later than the hour of 2300; b) Within predominantly commercial areas, such as parts of town centres – premises shall not be open to customers later than the hour of 2400.

Chapter 9 326 London Borough of Hammersmith and Fulham: UDP Alterations

c) There is a particularly high level of public transport accessibility to and from the premises at appropriate times; and d) The activity will not be likely to lead to a demonstrable increase in car parking demand in surrounding residential streets and roads forming part of the Strategic London Road Network or the London Bus Priority Network

Where a use will impact on amenity, the council will also set an appropriate start time.

9.57a Shops are increasingly opening for longer hours to cater for people’s changing shopping patterns and as part of the growth in the night-time economy. Twenty four hour shopping is available at some food stores. The Council, whilst acknowledging these changes, considers that in a borough such as Hammersmith and Fulham, where commercial and residential uses are often in close proximity, there needs to be control over the hours of opening if residential amenity is to be protected. Residential amenity can be affected detrimentally by people arriving and leaving premises late at night and early in the morning. Therefore the council will normally not permit premises to be open to customers after 11p.m. in residential areas or midnight in predominantly commercial areas with a high level of public transport accessibility. In addition, because of the impact that some shops may have on amenity, planning conditions may be applied to control hours of early morning opening. Exceptions to the normal closing times may be possible provided that clauses a) to d) are met. In looking at these clauses. The Council will consider a number of, including the type of use and the number of customers likely to attend, the proposed hours of operation, the level of public transport accessibility for customers either arriving or leaving the premises and the likely means of public or private transport that will be used by customers, the means of access to premises. The level of likely car parking demand on surrounding streets and the cumulative impact of night-time premises in the area. The policy is complemented by the council’s Public Entertainment and Night Café Licensing policy.

SH10 FACILITIES WITHIN MAJOR SHOPPING SCHEMES

1994 Policy SH10 deleted

SH11 FOOD AND DRINK ESTABLISHMENTS

The Council will, when considering applications for food and drink establishments, such as restaurants, public houses, wine bars, hot food take- aways, and other uses in Class A3 of the Town and Country Planning (Use Classes) Order 1987, take into account the effects on the amenities of any neighbouring properties, particularly those in residential use, and any other environmental impact such as traffic.

Planning permissions for use class a3 food and drink establishments will be subject to conditions controlling hours of operation, as follows: a) except in predominantly commercial areas, such as parts of town centres – premises shall not be open to customers later than the hour of 2300;

Chapter 9 327 London Borough of Hammersmith and Fulham: UDP Alterations

b) within predominantly commercial areas, such as parts of town centres – premises shall not be open to customers later than the hour of 2400.

Extended opening may be permitted where: a) the activities would not be likely to cause impact especially on local residents, and that, if there is potential to cause adverse impact, appropriate measures will be put in place to prevent it; and b) there will not be any increase in the cumulative impact from these or similar activities, on an adjacent residential area; and c) there is a particularly high level of public transport accessibility to and from the premises at appropriate times; and d) the activity will not be likely to lead to a demonstrable increase in car parking demand in surrounding residential streets and roads forming part of the Strategic London Road Network or the London Bus Priority Network.

In addition, subject to the location of the proposals, the Council will consider the type of activities appropriate to the A3 premises, and apply conditions on uses where these are appropriate.

Where appropriate the Council will have regard to the cumulative effect of the introduction of new A3 uses in any particular area and will consider as material any adverse environmental effects arising from the concentration of A3 uses in that area. Such Applications will also be considered in accordance with standard S24 of Chapter 11 of this Plan and in accordance with any Supplementary Planning Guidance that may be issued by the Council.

Where a use will impact on amenity, the council will also set an appropriate start time.

Proposals must also comply with development standard S.24 of chapter 11 of this plan.

9.59 The Council recognises the high level of demand for importance of A3 uses. They include a variety of activities, including take-aways, restaurants, bars and pubs. They can add variety and vitality to town centres and some are an important part of the night-time economy. In local centres they can provide local services to the community. In addition, A3 uses and acknowledges that restaurants and take-away local shops can provide important employment and economic development opportunities for disadvantaged sections of the community. The Council wishes to encourage such initiatives whilst, at the same time, minimising any potential adverse impacts on surrounding areas.

9.60 In some parts of the Borough there are excessive concentrations of restaurants, cafes, and take-aways. These concentrations such as in King Street and Fulham Road, are in close proximity to residential areas, and the traffic and car parking generated, particularly in the evening, cause considerable problems for local residents. In addition, the effect on amenities, through such as the appearance of ventilation ducts, and the noise and smell generated by restaurants, can also be a

Chapter 9 328 London Borough of Hammersmith and Fulham: UDP Alterations

major problem, particularly in conservation areas, or where they are in close proximity to residential areas.

9.61 It may be necessary to In order that the Council can control the number and distribution of A3 uses it has imposed limits on the number of A3 uses that can be permitted in town centres and other particular parts of the Borough. By applying these policies, the Council intends in order to avoid concentrations of single uses and the cumulative effects of excessive adverse impacts factors such as traffic and parking on local residents and the surrounding area (see also standard S 24 Food and Drink Establishments). Residential amenity can be affected detrimentally by the scale and nature of new proposals and by people arriving and leaving premises late at night and early in the morning. Therefore the council will normally not permit premises to be open to customers after 11p.m. in residential areas or midnight in predominantly commercial areas with a high level of public transport accessibility. In addition, because of the impact that some A3 uses may have on amenity, planning conditions may be applied to control hours of early morning opening. Exceptions to the normal closing times may be possible provided that clauses a) to d) are met. In looking at these clauses, The Council will consider a number of, including the type of use and the number of customers likely to attend, the proposed hours of operation, the level of public transport accessibility for customers either arriving or leaving the premises and the likely means of public or private transport that will be used by customers, the means of access to premises, the level of likely car parking demand on surrounding streets and the cumulative impact of A3 uses in the area, and the scope for mitigating any impact. In certain cases, where there is clear evidence that particular types of A3 use will have serious effects on residential amenity or the environment, the council will consider imposing conditions that restrict future changes of use which the Use Classes Order would otherwise allow. The policy is complemented by the council’s Public Entertainment and Night Café Licensing policy. In addition, there is supplementary planning guidance published by the council for A3 uses.

SH12 TEMPORARY MARKETS

The Council is not opposed in principle to temporary markets, but in considering applications on their merits it will need to be satisfied that the proposal will not adversely affect the amenities of the surrounding area.

9.62 The Council recognises the benefits of temporary markets, such as farmers’ markets, for customers. However, since they can attract large numbers of people, both customers and traders, it is necessary to minimise annoyance to local residents, and problems for local traders.

Chapter 9 329 London Borough of Hammersmith and Fulham: UDP Alterations

APPENDIX 9.1 PRIME RETAIL FRONTAGES IN TOWN CENTRES (SH2)

(i) Shepherd's Bush

Uxbridge Road: North Side - Nos. 54-202 South Side - Shepherds Bush Centre.

(ii) Hammersmith Centre

King Street: North Side - Between No.2. and No. 94, Including Kings Mall. South Side - Nos. 1-131.

Hammersmith Broadway: Broadway Centre (excluding Queen Caroline Street frontage) - subject to Planning Permission (31.3.89) which permits A1 and A3 uses.

(iii) Fulham Centre

North End Road: West Side Nos. 238-406 276-406 East Side Nos. 313-471 373-471

Jerdan Place: North Side Nos. 1-19a South Side Nos. 2-24

Fulham Road: North Side 480 and 498-504.

Chapter 9 330 London Borough of Hammersmith and Fulham: UDP Alterations

APPENDIX 9.2 KEY LOCAL SHOPPING CENTRES (SH3)

1. East Acton Old Oak Common Lane, 74 to 100 Erconwald Street, 1 to 5, 2 to 4 Westway 1-11

2. North Pole Road North side, 6 to 24 South side, 17 to 21, 485 to 493 Latimer Road

3. Bloemfontein Road Shop premises in Charnock House

4. Uxbridge Road West South side, 171 to 197a North side, 400 to 428, 432 to 448

5. Uxbridge Road East North side, 216 to 250, and 262 to 294 South side, 15 to 41, and 57 to 95

6. Edward Woods Estate 2-18 Swanscombe Road Shop units in Swanscombe House Shop units in Mortimer House

7. Askew Road East side, 105 to 119, 63-105, 121-163 West side, 66 to 118, 120-128

8. Goldhawk Road South side, 57 to 75 North side, 56 to 120

9. Shepherd's Bush Road West side, 48 to 104

10. Blythe Road North side, 108-118, and Coleridge Court shop units South side, 59 to 77

11. Baron's Court Palliser Road, West side, 45-55 Margravine Gardens, South side, 1, 3, 3a Shops in Baron's Court station

12. North End Road (West Kensington) East side, 137 to 153, 155-169, 175 to 203c, plus 4 to 12 North End Crescent West side, 62 to 70, 86 to 110, plus 1 Baron's Court Road, 2 Castletown Road, 2-6 Charleville Road, 1 Charleville Road

Chapter 9 331 London Borough of Hammersmith and Fulham: UDP Alterations

13. Greyhound Road North side, 3 to 11, and 27 to 43 South side, 2 to 54, 2-22 Fulham Palace Road, West side, 192 to 206, 179-191

14. Munster Road East side, 236 to 244 West side, 199 to 259

15. Fulham Palace Road (Central) East side, 323 to 327, 329 to 367

16. Fulham Road West North side, 758 to 792 South side, 947 to 961

17. Fulham Road North side, 656 to 702c South side, 799 to 859

18. Parson's Green New Kings Road, North side, 26 to 38 South side, 173 to 207

19. Wandsworth Bridge Road (North) East side, 99 to 133 West side, 112 to 130, and 134 to 142

20. Wandsworth Bridge Road (South) West side, 308 to 314 East side, 269 to 283 Shop units in Perotti House

Chapter 9 332 London Borough of Hammersmith and Fulham: UDP Alterations

APPENDIX 9.3 PROTECTED SHOPPING PARADES AND CLUSTERS (SH4A)

Protected Parades and Clusters

1. Munster Road: 287-297 Munster Road 299-305 Munster Road 325-337 Lillie Road 296-320 Munster Road

2. Lillie Road: 269-323 Lillie Road

3. Dawes Road: 1-13 Salisbury Pavement, Dawes Road 176-184 Dawes Road 133-147 Dawes Road 149-163 Dawes Road 2 Filmer Road 23 Sherbrooke Road 165-189 Dawes Road

4. New Kings Road 48-60 New Kings Road 62-80 New Kings Road 82-96 New Kings Road 251-269 New Kings Road 271-285 New Kings Road 287-301 New Kings Road

5. Fulham Road: 604-620 Fulham Road 624abc-630 Fulham Road 632-646 Fulham Road 753-763 Fulham Road 765-781 Fulham Road 783-797 Fulham Road

6. Fulham High Street: 6-66 Fulham High Street (Parkview Court) 963-969 Fulham Road 1-9a Fulham High Street 15-35 Fulham High Street 41-47 Fulham High Street 49-67a Fulham High Street

7. Kings Road: 559-575 Kings Road 577-581 Kings Road 587-599 Kings Road 554-562 Kings Road 564-598 Kings Road 600-612 Kings Road

8. Brackenbury Village: 127a-139 Brackenbury Road

9. King Street: 294-316 King Street (Hamlet Gardens) 318-328 King Street 330-340a King Street 344-372 King Street 345-357 King Street 369-403 King Street

Chapter 9 333 London Borough of Hammersmith and Fulham: UDP Alterations

10. King Street: 182-230 King Street (Ravenscourt Park) 232-246a King Street 248-260 King Street 209-217 King Street

11. Latymer Court: 102-172 Hammersmith Road

12. Fulham Palace Road: 54-66 Fulham Palace Road 82-114 Fulham Palace Road 91-99 Fulham palace Road 101-111 Fulham Palace Road 113-127 Fulham Palace Road

Chapter 9 334 London Borough of Hammersmith and Fulham: UDP Alterations

CHAPTER 9A: TOWN CENTRES

RESTATEMENT OF PART 1 POLICY G2A: 338

RESTATEMENT OF PART 1 POLICY G7B: 338

RESTATEMENT OF PART 1 POLICY G6C: 338

RESTATEMENT OF PART 1 POLICY G6D: 338

JUSTIFICATION FOR PART 1 TOWN CENTRES POLICY 338

INTRODUCTION 338

ISSUES 339 Hammersmith 339 Fulham 341 Shepherd's Bush 341

POLICY CONTEXT 342 National policy 342 Regional 343 Strategic/London-wide policy 343

STRATEGY 343

POLICIES WHICH APPLY TO ALL THREE TOWN CENTRES 344 TC1 MAJOR DEVELOPMENTS 344 TC2 SH2 PRIME RETAIL FRONTAGES IN TOWN CENTRES 344 TC3 SH4 OTHER RETAIL PREMISES OUTSIDE PRIME RETAIL FRONTAGES AND KEY LOCAL SHOPPING CENTRES 348 TC5 E2 TOWN CENTRES BUSINESS AND OTHER EMPLOYMENT GENERATING USES 348 TC6 HOUSING 350 TC8 SECTION 106 AGREEMENTS TOWN CENTRE DEVELOPMENT AND INFRASTRUCTURE PROVISION 351

HAMMERSMITH 353 HTC1 OFFICES 353 HTC3a HAMMERSMITH MARKET 353 TN11 ROAD PROPOSALS 354 HTC6 ARCHAEOLOGY 354 HTC7 SITE PROPOSALS 354 1. SITE 17 HAMMERSMITH CENTRE PARK 354 2. SITE 27 HAMMERSMITH AND CITY LINE STATION CAR PARK 354 3. SITE 75 NIGEL PLAYFAIR AVENUE CAR PARK AND CINEMA 355 4. SITE F HAMMERSMITH PALAIS, SHEPHERDS BUSH ROAD 355

Chapter 9A 336 London Borough of Hammersmith and Fulham: UDP Alterations

5. SITE G WIMPEYS, 26-28 HAMMERSMITH GROVE 355

FULHAM 356 FTC1 BUSINESS 356 FTC4 STREET MARKET 356 FTC7 ARCHAEOLOGY 357 FTC8 SITE PROPOSALS 357 1. SITE 63A COOMER PLACE, (southside) 357 2. SITE 63B COOMER PLACE, (northside) 357 3. SITE C FORMER BT TELEPHONE EXCHANGE CAR PARK, THAXTON ROAD/NORTH END ROAD. 358 5. SITE E FULHAM ISLAND SITE 358

SHEPHERDS BUSH 359 SBTC3 SHEPHERDS BUSH MARKET 359 SBTC5 ENVIRONMENTAL AND TRANSPORT IMPROVEMENTS 359 SBTC6 SITE PROPOSALS 359 1. SITE 36 WHITE CITY CENTRE SITE 359 2. SITE 79 ODEON 1 CINEMA, SHEPHERDS BUSH GREEN 361

Chapter 9A 337 London Borough of Hammersmith and Fulham: UDP Alterations

CHAPTER 9A. TOWN CENTRES

RESTATEMENT OF PART 1 POLICY G2A: sustaining three town centres as places for a wide range of shopping, services, entertainment and other facilities, together with appropriate employment and some residential. in a high quality environment with a high level of public transport accessibility; and, in the case of Hammersmith Town Centre having regard to its strategic employment and entertainment functions and to the enhancement of its strategic transportation function; EN23, TN5, TN11, E2, E8, HO5, CS1, CS2, CS7, SH2, SH6, SH7, SH8, SH9, TN3, Sites 17, 27, 36, 63a, 63b, 75, 79,

RESTATEMENT OF PART 1 POLICY G7B: b) resisting large shopping schemes outside the three town centres that are not accessible by a variety of means of transport or are likely to have a serious adverse effect on the vitality and viability of those centres; SH7, SH9,

RESTATEMENT OF PART 1 POLICY G6C: c) encouraging large B1 proposals to locate in areas of higher public transport accessibility, in particular where such areas are in the town centres, and discouraging it elsewhere, especially in predominantly residential areas; TN2, S1

RESTATEMENT OF PART 1 POLICY G6D: d) requiring large B1 proposals on appropriate sites in town centres to be part of mixed use schemes that retain and provide other facilities that are appropriate to the scale, nature and location of the scheme and contribute to the viability and vitality of the town centre, whilst preserving and enhancing the character of the area;

POLICY G9A: TOWN CENTRES

The council will seek to regenerate the town centres of hammersmith, fulham and shepherd’s bush by enhancing their vitality and viability as places for a wide range of shopping, services, entertainment and other facilities, together with employment and residential uses. A high quality environment will be sought for town centre residents workers and visitors alike, and the pedestrian environment will be protected and enhanced in combination with measures to minimise the impact of vehicle traffic and improvements to public transport accessibility and accessibility by other alternatives to private car use.

JUSTIFICATION FOR PART 1 TOWN CENTRES POLICY

INTRODUCTION

9a.1 There are three centres within the Borough of Hammersmith and Fulham, namely Hammersmith, Fulham and Shepherds Bush, which because of their size, status and range of shops, businesses, entertainment and other facilities are

Chapter 9A 338 London Borough of Hammersmith and Fulham: UDP Alterations

designated as town centres. They are well served by public transport and are readily accessible to people living and working in the borough and other parts of London, as well as visitors and tourists.

ISSUES

9a.2 Throughout the late 1990s there has been increasing realisation by the Government and public and private interests of the importance of town centres to the quality of life and to delivering sustainable development. Town centres have become the focal points for regeneration initiatives and have been subject to revisions in Government policy, particularly to increased emphasis on town centres as the most appropriate places for large scale developments and to controls on out-of-centre developments. In addition there have been a number of socio-economic trends in the 1990s, such as the growth in leisure and entertainment proposals, seven day trading and the growth in the night-time economy, especially the use of bars and restaurants, which have particularly affected town centres. There have also been important transport policy changes affecting town centres, namely an increase in traffic restraint measures which have been accompanied by initiatives to promote public transport.

9a.3 3.3 The renewed interest in town centres has important regeneration and sustainability consequences. Town centres are focal points where have always served as places which people visit converge, or can converge, for a variety of activities. They contain within their boundaries not only retail outlets and business uses but also community service uses (including leisure facilities, cultural facilities and religious buildings) civic and public buildings and transportation facilities. In addition, town centres are also places where people live.

9a.4 3.4 Each of Hammersmith and Fulham's three town centres has its own character or "sense of place" based on these activities, and on the buildings and spaces - their design, forms and relationships with each other - within which the activities are carried out. Each of the three town centres has a substantial area designated as a conservation area (see para. 3.17).

Hammersmith

9a.5 3.5 The town centre has King Street as its main axis, but includes Hammersmith Broadway and part of Hammersmith Road and also extends up Shepherd's Bush Road. Shops are primarily located in King Street and the Broadway Shopping Centre, and while they have a catchment area which includes parts of Ealing, Hounslow, Richmond and Kensington and Chelsea they mainly serve the centre of the Borough (Town Centre Catchment Areas, 1984: Research Report 69). The major employment areas are particularly at the eastern end of the centre where the Novotel Hotel and large office blocks are is also situated, whilst at the western end is the Borough's principal centre for local government administration (Hammersmith Town Hall). Arts and entertainment establishments are focussed around the Broadway area.

9a.6 3.6 Hammersmith Centre has undergone significant development changes in the last 20 years partly as a result of its closeness to the City and outward extensions of development pressure, and partly because of its own locational attractions (which include not only the A4 running east-west and other important roads, but also Hammersmith Broadway with its three underground rail services and bus station). The changes have involved an increase in the number and range of shops and jobs (including the redevelopment of the Island Site at Hammersmith Broadway, the new

Chapter 9A 339 London Borough of Hammersmith and Fulham: UDP Alterations

Magistrates Court in Talgarth Road and the Ark), but have also had less attractive repercussions with some parts of the centre experiencing deteriorating and less hospitable environments, and a loss of uses which serve the local community. A number of old buildings and local landmarks have been lost or have been changed as a result of been destroyed as a result of large-scale office new development, while additional developments in the "pipe-line" will create further changes. However, there is still a great deal significant amount of high-quality townscape in the centre which is recognised by much of the area being included in one of two conservation areas. There has been an increase in traffic congestion (albeit not all locally generated) and there is now a serious question concerning how much further development the town centre can take. Traffic congestion has been a problem, but there have been a number of initiatives to restrain traffic and improve conditions for pedestrians and cyclists, for example the introduction of surface crossings to the Broadway scheme. There are few obvious a number of major development sites in the centre and others on the edge of the centre that will have an impact on Hammersmith. development sites left in the centre, and therefore an increasing need to consolidate rather than expand if the remaining If the remaining town centre fabric is not to be threatened and the development of these sites is to benefit pressures are not to spread into areas adjoining the town centre there will need to be close co- operation between the Council, the local community and developers. The Council has developed, and will continue to review, a programme of town centre environmental and transportation improvements to enhance the town centre’s townscape and pedestrian environment (including CCTV initiatives) so it remains a place where people will want to shop and visit and where businesses will want to invest.

9a.7 Significant improvements have already been carried out including the creation of the award winning town park, St Pauls Green. This provides an important amenity space as well as a strong link between Hammersmith and the riverside. In addition to the surface crossings at the Broadway other pedestrian and cycling improvements in Hammersmith include King Street pavement widening and extension of the cycle lane contra flow. Lyric Square will provide a public space of the highest standard and be a major focal point in the centre of Hammersmith. Landscape improvements have been carried out at Furnivall Gardens and Upper Mall. Hammersmith Steps, to be implemented in 2000, will be a major landscape feature providing access to the river and foreshore as well as improvements to the Thames Path.

9a.8 3.7 Hammersmith is the largest of the Borough's three town centres and has been identified by LPAC as a Major Centre. was designated as a Strategic Centre in the former Greater London Development Plan. LPAC has also identified Hammersmith as a Strategic Centre for consolidation with a Neutral/Trend status, whereby development should be accommodated up to its capacity and providing it does not compromise wider strategic objectives, especially accessibility to services already provided by other centres in the town centre network. The Council agrees with LPAC that Hammersmith Centre has a structural significance for London in respect of certain functions, such as employment and entertainment, and that it is a strategically important public transport interchange. However, in respect of retail provision there are three town centres in the Borough, each of which is important in providing shopping and other services. The Council also agrees with LPAC that there is a need to consolidate Hammersmith Centre. Its view, therefore, is that it is not appropriate to designate Hammersmith as a Strategic Centre because this could be taken to suggest that the Council proposes significant growth, which is not the case. The centre should continue to maintain a strategic role in some respects but only as long as this does not lead to further congestion and/or environmental deterioration.

Chapter 9A 340 London Borough of Hammersmith and Fulham: UDP Alterations

Fulham

9a.9 3.8 Fulham Centre is situated at the southern end of North End Road and extends south to Fulham Broadway, with its underground railway station. Its main activity is the provision of shopping (including the busy North End Road Market) and services for the local Fulham community. The centre has traffic congestion and car parking problems and has suffered from competition with surrounding centres since 1980 (including Kensington High Street and Putney), and the Sainsbury's out of centre stores in Cromwell Road and Townmead Road, and in Warwick Road. Additional pressures on the vitality and viability of the centre are likely if retail superstore s proposed currently for in Warwick Road in Kensington and Chelsea and for the Wandsworth riverside are built. It has lost not only elements of its retail business, particularly at the northern end of the centre, but also recreation and entertainment uses and many of its local government administration functions. Despite this situation, however, the centre has managed to attract a number of new retailers and continues to provide an important focus for many residents. In addition there are also a number of potential new developments which will help regenerate the centre, namely the sites at the former BT Telephone Exchange Car Park, Thaxton Road/North End Road (Site C), Fulham Broadway (Site D) , Fulham Island Site (Site E) and Crowthers market at Coomer Place.

9a.10 3.9 Much of the southern part of the centre has been designated a conservation area, and certain parts, particularly around Fulham Broadway and Walham Green, have benefited from environmental and traffic improvements, for example the high quality pedestrian scheme at Vanston Place and Jerdan Place. This area in particular has a character and appearance of special quality where the historic road pattern and the predominantly Victorian buildings provide a townscape of architectural and historic interest and a village-like atmosphere. The northern part of the centre where the street market is an important feature does not have the same townscape quality and is also failing to attract the same level of investment.

9a.11 As part of the Central Fulham Partnership, the Council had a regeneration strategy for the town centre and surrounding area drawn up. The results have been taken into account in the UDP, whilst the availability of Single Regeneration Budget (SRB5) monies from the “Bridging the Divides” programme, together with private investment from development schemes, will lead to a significant investment in improving the fabric and infrastructure of the town centre and schemes that directly assist people in the area in need of training and jobs. If and when the proposed Chelsea-Hackney Line is built there may be further implications for the centre which will have to be assessed. The refurbishment and improvement of North End Road market is a priority in regenerating Fulham. The Council will build upon ideas developed during the Architecture Foundation Roadshow to improve the market and the North End Road streetscene.

Shepherd's Bush

9a.12 3.10 Shepherd's Bush town centre covers the area surrounding Shepherd's Bush Common and comprises a mixture of employment, including major organisations such as the BBC and Inland Revenue, shopping (including Shepherd's Bush Market), entertainment and residential uses. It is well served by public transport with two underground lines and is at the southern end of the M41 with its link to the A40. It was the first of the Borough's town centres to experience a major

Chapter 9A 341 London Borough of Hammersmith and Fulham: UDP Alterations

shopping development when the shopping precinct on the south side of the Common was built in the late 1960s.

9a.13 3.11 Planning permission has been granted for a major new development of shopping and other uses, including leisure, on Site 36 to the north of the town centre. If Proposals that include the extension of the town centre as a result of a major shopping development go ahead on land to the north of the centre (see Site 36 White City Centre) there will be see a shift in the centre of gravity of the town centre. The development will offer many opportunities to the centre and will greatly increase the range of shopping but will also present challenges to many existing shops and businesses. In addition the Concord Centre on the south of Shepherds Bush Green is subject to permission for a multiplex cinema development and refurbishment.

9a.14 3.11 The increased number of shoppers visiting the centre, together with the increased number of jobs generated by the White city Centre development and by other developments under construction or proposed both within and adjoining the centre, are likely to present environmental and traffic challenges. It is important to ensure that these changes to the town centre are sustainable and that they do not have a detrimental effect on the local fabric, much of which is still Victorian in character. Indeed Rather than compound the environmental issues which already exist (despite programmes of environmental and traffic improvements) as a result of the centre's fragmented layout and the busy roads which surround the common, it is important that environmental problems are reduced. The availability of Single Regeneration Budget (SRB) monies for the White City Regeneration Area, together with private sector funding, especially from the White City Centre scheme, will help create a sustainable town centre environment.

9a.15 An economic study is is being undertaken to devise an economic action plan for the centre. In addition a programme of environmental and transportation improvements is being developed as part of a strategy for the town centre. The objective of these improvements is to improve pedestrian movement and linkages, to integrate the different parts of the town centre and to enhance and support existing and new roles in the centre in the context of the change brought about by the major new shopping centre. Enhancing Shepherds Bush Green as a public open space is central to this strategy as at present its potential is compromised by heavy traffic on the surrounding roads together with difficult access and crossings for pedestrians and cyclists.

POLICY CONTEXT

National policy

9a.16 The Government's policy on town centres is included primarily in PPG6 Town Centres and Retailing. This states in para 2.1 that:

“town centres are part of our national civic heritage, and securing their health helps to foster civic pride and local identity. It also helps promote sustainable development”.

9a.17 In para 2.3 the PPG states that :

“the Government wishes to encourage the development of town centre strategies; enable town centre development through development plans and by facilitating site assembly; attract investment into upgrading existing buildings and high quality development; encourage investment in retail, employment, leisure and other key

Chapter 9A 342 London Borough of Hammersmith and Fulham: UDP Alterations

town centre uses; encourage mixed use development in town centres; encourage an increase in housing in town centres; promote town centre management, including maintenance of public areas; improve access and traffic management; make more effective use of town centre car parking; and encourage high-quality design of both urban spaces and buildings”.

Regional

9a.18 RPG9 states that “the regional network of larger town centres should be the focus for major retail, leisure and office developments, to support an urban renaissance, promote social inclusion and encourage more sustainable patterns of development”.

Strategic/London-wide policy

9a.19 Strategic Guidance for London Planning Authorities (RPG3) also recognises the importance of town centres, and states that:

“in London, each centre provides a unique blend of functions and strengths and not all centres have the same characteristics and opportunities”.

9a.20 RPG3 commends the hierarchy of centres defined by LPAC which designates both Hammersmith and Fulham as major centres. The Guidance notes that in the future, some centres may change their status, and in this respect LPAC recognises in Supplementary Advice on Strategic Town Centres that Shepherds Bush may have the potential to become a major centre. The Council’s view is that this will certainly be the case when Site 36 is developed.

STRATEGY

9a.21 The Council’s development plans have for many years identified the three town centres of Hammersmith, Fulham and Shepherds Bush. It is intended to continue to pursue policies which are environmentally sustainable and which support the three town centres as places which provide a focus for a variety of activities, including shopping, local services, leisure and entertainment, other commercial activities and housing. Policy guidance at a national, regional and London-wide level establishes the importance of town centres, and supports the Council’s approach.

9a.22 The Plan will provide a common approach to certain issues facing the town centres, for example, protecting against out-of-centre developments, attracting a variety of uses, the implications of the growth in the night-time economy, support for town centre markets, and measures for traffic restraint whilst promoting public transport improvements. However, each centre has its own specific issues, and there is a need for strategies to be developed to meet the respective problems and opportunities. In Hammersmith, policies will seek to consolidate the town centre’s position as the major commercial and entertainment centre in the borough and will support comprehensive environmental and transportation improvements, in part supported by major development opportunities. In Fulham, policies will seek to regenerate the centre after many years of decline, and will dovetail with the Central Fulham Partnership’s initiatives and use SRB 5 monies. In Shepherds Bush, policies will try to ensure that the centre benefits fully from the development of the White City Centre which will be integrated into the town centre.

Chapter 9A 343 London Borough of Hammersmith and Fulham: UDP Alterations

9a.23 The Council recognises that sustaining and regenerating the town centres will require the collaboration of the private sector, including property owners and developers, as well as other organisations, such as transport operators, entertainment establishments, the police and the community as a whole. The Council is already involved in a number of partnerships which are concerned with town centre issues, and it will develop these further and continue with its policy of community involvement in preparing and implementing town centre strategies and individual initiatives. Town centre management, including designing out crime and the promotion of visitor facilities, will be a key element in developing and progressing sustainable strategies for the centres.

POLICIES WHICH APPLY TO ALL THREE TOWN CENTRES

TC1 MAJOR DEVELOPMENTS

The preferred location for developments which are major generators of travel and transport demand is within town centres.

Major new shopping development will be permitted on town centre sites other than those identified for such purposes in the chapter 9A site proposals, only if there is a demonstrable quantitative and qualitative need for additional retail facilities and the proposal would not prejudice the retail strategy of the plan.

In accordance with the Government’s sequential approach to the location of development, the council considers town centres to be the prime location for all uses likely to attract substantial numbers of users. These uses include not only shopping, ACE (arts, culture and entertainment) and recreation, but also other major generators of travel demand such as offices. This is because town centres provide access to public transport interchanges and to a range of means of transport that are necessary for major generators of travel and transport demand.

TC0/7 9a.24 Locating major developments in town centres is also important to a community’s quality of life and play a key role in delivering sustainable development and supporting regeneration initiatives and achieving environmental protection. In respect of new retail proposals, however, in addition to satisfying the sequential approach, these will also need to have satisfied the “need test” for additional retail facilities if they are put forward for sites that are not identified in the Plan for such use.

In addition to the requirements of policy TC1, the Plan contains specific complementary policies on employment uses (including policy E1), new ACE facilities (CS2A) and shopping (SH9) that adopt the sequential approach towards the location of major development, whilst policy HTC1 specifically identifies Hammersmith Town Centre as the preferred location for offices in the borough. There are also policies that safeguard residential amenity and the environment (see EN21, CS2B and SH9A).

TC2 SH2 PRIME RETAIL FRONTAGES IN TOWN CENTRES

The Council has defined 'prime retail frontages' in the three town centres, as shown on the Proposals Map, and in Appendix 9.1. Only those uses within

Chapter 9A 344 London Borough of Hammersmith and Fulham: UDP Alterations

Class A1 of the Town and Country Planning (Use Classes) Order 1987 will normally be allowed to occupy space anywhere on the ground floor of prime retail frontages.

Uses included in Classes A2 and A3 of the above Order, and other uses complementary to the retail frontage, will be permitted to occupy ground floor space in prime retail frontages on the following basis, a) no more than one third of the length of frontage in an individual street block should be occupied by non-retail uses (non-retail is defined to include all uses other than those included within Class A1 of the Use Classes Order).

1. Within the prime retail frontages shown on the proposals map and identified in appendix 9.1, permission will not be granted for any change of use that would result in loss of class A1 floorspace, or reduction in the proportion of the length of frontage in class A1 use at street level: a). In Hammersmith town centre, between 1-93 King Street and on the north side of King Street between Hammersmith Grove and Leamore Street. b). In Fulham town centre, between 312-406 and 417-445 North End Road, and 1-19a and 2-24 Jerdan Place.

2. Elsewhere within the prime frontages, changes out of A1 floorspace or a reduction in the proportion of the length of frontage in A1 will only be permitted for class A2 and A3 uses at street level if:

No more than 33% of the length of the prime retail frontage as whole or and no more than 33% of the length of the frontage in an individual street block (including in enclosed purpose built shopping centres and in malls) would be occupied by uses other than those within class A1 b) no more than 20% of the length of an individual street block in any part of the prime retail frontage would be in class A3 uses (except in Shepherds Bush where the maximum percentage will be 33%); c) Other than in enclosed purpose-built shopping centres or in malls, no the clustering of non-retail uses within a street frontage will be opposed, where more than two adjoining premises or a frontage in excess of 15 metres (49 feet), whichever is the lesser width of frontage, would be occupied by uses other than those within class in non-A1 use unless it can be demonstrated that harm would not result to the vitality, viability or retail character of the area; and d) Planning conditions will be imposed in any permission for such changes of use to secure provision of a shop style fascia, with an appropriate and window display, at ground floor street level; and to control the hours of opening of class A3 uses. f) proposals for A3 uses will also be subject to the requirements of policy SH11.

In enclosed purpose-built shopping centres or in malls the Council will normally apply policy SHa) to the whole internal frontage; and policy SHb will not normally be applied.

Chapter 9A 345 London Borough of Hammersmith and Fulham: UDP Alterations

In all calculations of the proportion of the frontage of street blocks in Class A1 and non-A1 uses, unimplemented changes of use will be taken into account.

9a.25 9.40 The Council is concerned to maintain the attractiveness and viability of the three town centres as the principal shopping centres of the Borough. For a centre to operate successfully, it is necessary for the shops to group together, in order to enable shoppers to make comparisons. Intrusion of non-retail uses on too large a scale can inhibit this process, reducing the attractiveness of a centre, and damaging its trading position. Non-retail uses for these purposes are defined to include all uses other than those included within A1 of the Use Classes Order 1987. The Council has defined prime retail frontages in order to maintain and enhance the efficient operation of the three town centres, by regulating the convenient and attractive disposition of retail floorspace within them (PPG6: Town Centres and Retail Developments). Within Hammersmith town centre, the prime retail frontage includes Kings Mall, an enclosed shopping centre. A smaller mall, the Broadway Centre, exists at Hammersmith Broadway. The core area with the highest proportion of multiples, complementary uses and the best accessibility extends between these two malls. Within Fulham, the prime retail frontage extends along North End Road into Jerdan Place. The development of the Fulham Broadway scheme (Site D) may necessitate a further review of prime retail frontage to include the development. In Shepherds Bush, the prime retail frontage consists of 54-202 Uxbridge Road and the Concord Centre on the south side of the Green. The development of the White City Centre (Site 36) will require a review of the prime retail frontage once the scheme is operating, and in the meantime the council considers it appropriate to operate a greater degree of flexibility.

9a.26 9.41 Some non-retail uses, such as a shoppers' creche, bank, or building society are complementary to the town centres' primary shopping function because they provide a vital local service, are essential to the operation of the shops, or are heavily used by shoppers. However, there must be a limit to the extent of such uses, otherwise the retail function would be adversely affected by loss of overall numbers of shops, and by making comparison shopping more difficult through dispersal of those which remain. The Council considers that non-retail uses should not occupy more than about one third of the length of an individual shopping block, and that no more than about one third of the prime retail frontage as a whole in a town centre should be in non-retail use, because a greater concentration may damage the viability of the retail function. This figure is based on the figure of 35% non-retail use in prime retail frontages which the Unit for Retail Planning Information considered acceptable in 1979. The Council has calculated, on the basis of the 1992 Land Use Survey, the proportion of street block frontages in each of the town centres in non- retail use, and it is clear that the figure of about one third would not prevent new A2 and A3 users from setting up in the prime retail frontage of any of the town centres. The figure for individual street blocks has been used by the Council for many years and usually does not prevent the setting up of new A2 and A3 uses or other uses which are complementary to the retail fronatge and which maintain or increase the vitality and viability of the prime retail frontage. However some frontages have non- retail uses in excess of one third, and to compensate for this infringement the Council will also assess the proportion of non-retail uses throughout the entire length of the prime retail frontage in determining planning applications for these uses. In Hammersmith and Fulham town centres the normal one third quota will not apply to certain sections of prime retail frontage because of the Council’s concern that further non-retail uses in these core parts of the town centre would be detrimental to vitality and viability. In Hammersmith this policy will apply to the core area of 1-93 King Street and the north side of King Street between Hammersmith Grove and Leamore Street. This frontage is in the heart of the centre with the greatest activity; it is the

Chapter 9A 346 London Borough of Hammersmith and Fulham: UDP Alterations

most visible and has direct links with Kings Mall and the Broadway centre. In Fulham, the policy will apply to the prime retail frontage consisting of 312-406 and 417-445 North End Road and 1-19a and 2-24 Jerdan Place where the council considers it particularly important for there to be a significant presence of Class A1 uses. These parts of the centre include the most modern premises and contain key town centre retailers that will provide an important complementary balance to the new Fulham Broadway development. In Shepherds Bush, the council considers that a different approach is necessary because of the likely impact of the White City Centre redevelopment. Therefore, in this centre the council has adopted a more flexible approach whereby the one third quota operates throughout the prime retail frontage.

9a.27 The one third quota is intended to permit diversity of uses whilst protecting the predominance of retail in prime retail frontage. However, the growth in Class A3 uses and the rationalisation of many Class A2 financial uses has led to some frontages where the one third non-retail frontage is predominantly restaurants. There are cumulative effects arising from the clustering of Class A3 uses, such as “dead frontages” at certain times of the day and impact on residential amenity outside normal shopping hours. The Council therefore considers that no more than 20% of the frontage of an individual street block should be permitted to change to such a use. This control will permit Class A3 uses, and at the same time allow for the provision of Class A2 uses and other complementary uses.. In certain cases, where there is clear evidence that particular types of use will have serious effects on residential amenity or the environment, the council will consider imposing conditions that restrict future changes of use which the Use Classes Order would otherwise allow (see also policy SH11). Notwithstanding these considerations, in Shepherds Bush, the Council will permit up to one third of the frontage of an individual street block to change to A3 use. This is because the council considers that in Shepherds Bush, this greater degree of flexibility in the prime retail frontage is appropriate if the effects of the proposed new White City Centre scheme on the existing town centre are to be successfully managed. The development of the White City Centre will require a further review of the prime retail frontage, once the scheme is operating.

9a.28 9.43 Within the King Street prime retail frontage there is Kings Mall, an enclosed shopping centre. A smaller mall, the Broadway Centre, exists at Hammersmith Broadway, whilst in Shepherd's Bush there is the Concord Centre. Because there are no individual street blocks in shopping malls the Council considers it appropriate that the maximum of one third permissible non-A1 uses should be calculated on the whole interior frontage. In addition, the Council considers that the anti-clustering policy should not apply within shopping malls because of their particular characteristics, in particular the fact that the absence of traffic means shoppers have more freedom of movement, and because the operators of malls will, like the Council, seek a disposition of uses which maintains the overall vitality of the malls. Food courts require a large A3 frontage and are now included in many new enclosed shopping centres in other town centres. They can add vitality to malls and their appropriateness and popularity is accepted by the Council. The external frontage of enclosed shopping centres will be subject to SHTC2a) and SH2bTC2c). In accordance with the original planning permission granted for the Broadway Centre both A1 and A3 uses are permitted within that mall.

9a.29 9.42 The clustering of non-retail uses may create dead frontage because of a lack of interesting window displays and for this reason all premises in the prime retail frontage should provide appropriate window displays. In addition, the avoidance of blank frontages, such as 'dead' shop or office frontages, can be a major contribution to retaining pedestrian activity, retaining commercial life in the area, and to crime prevention.

Chapter 9A 347 London Borough of Hammersmith and Fulham: UDP Alterations

TC3 SH4 OTHER RETAIL PREMISES OUTSIDE PRIME RETAIL FRONTAGES AND KEY LOCAL SHOPPING CENTRES

Changes out of a class in non-prime retail frontage premises will not be permitted except for uses which can be shown to be complementary to the shopping frontage and maintain or increase the vitality and viability of the town centre Within town centres, changes out of a class use in non-prime retail frontage premises will not normally be permitted except for uses that are which can be shown to be complementary to the shopping frontage and maintain or increase the vitality and viability of the town centre. Outside the prime retail frontages, permission will not be granted for change of use of existing class a shops that would result in more than 50% of the length of frontage of any one street block being occupied by uses other than those within class A1 or more than 33% of the length of frontage of an individual street block being in class A3 use).

In all calculations of the proportion of the frontage of street blocks in class A1 and non-A1 uses, unimplemented changes of use will be taken into account.

9a.30 9.46 The Council considers that a network of local shops is necessary, so that local needs, particularly those of the less mobile people such as the elderly, wheelchair users and parents with young children, can be met near home. The non- prime retail frontages in the town centres still have an important function. They provide locations for more specialist retailers, retailers who cannot afford prime location rents but sell goods appropriate to the town centre, and services in the A2 and A3 use classes, and health services. It is desirable, therefore, to maintain the stock of premises suitable for these uses in order to maintain the vitality and viability of the town centres and the range of facilities available. It is not appropriate, normally, to allow changes to other uses that do not contribute to the vitality of the shopping frontages or the town centre as a whole and which reduce the stock of accommodation for uses that do have this role. The Council consider that in these frontages, a satisfactory balance of uses, taking into account the existing position with regards to retailer and business representation, can be achieved by permitting no more than 50% of the frontage to change to non-retail use, and no more than 33% should to Class A3 use. The Council will, when considering whether non-A Class uses are acceptable, take into account the variety of uses mentioned in PPG6.

The Council will support the retention of existing street markets in Hammersmith, and Fulham. and the market at Shepherd's Bush, together with the retention of associated storage facilities. 9a.31 9.49 These markets and related activities make a positive contribution to the character of the Borough's shopping centres, and complement other shopping facilities, because market customers also use the shops in the area. The Council provides some storage facilities in Fulham Centre but in order to facilitate the operation of that market it is essential to retain other storage facilities.

TC5 E2 TOWN CENTRES BUSINESS AND OTHER EMPLOYMENT GENERATING USES

The Council will seek to sustain a range of employment generating uses appropriate to a town centres. Loss of land from B Class and similar activities

Chapter 9A 348 London Borough of Hammersmith and Fulham: UDP Alterations

will normally not be permitted and improvements to the existing stock will be encouraged.

1. Permission will not be granted for development involving the loss of land or floorspace in class B or other similar employment floorspace use.

Development proposals on employment sites for uses other than B Class Uses but which generate significant employment such as shopping, will be considered on their merits and in accordance with the other policies of the Plan.

New business development will be required to retain and provide facilities which contribute to the life and vitality of the town centre. In particular: 2. Development for B class and other employment generating uses will only be permitted if: a) It should not involve the There would be no loss of floorspace for shopping, leisure, entertainment, other community services or housing floorspace and, in the case of office schemes of more than 2.500 sq m, the proposal includes shopping and/or leisure and/or entertainment and/or community service uses or, if adjacent to a predominantly residential area, affordable housing; and (See Community Services Chapter 8 for definition of community services). b) Class A1 retail use is included at street level as part of any scheme Within shopping frontages it should provide accommodation within Use Class A at ground floor level subject to the proportion of A1 uses to be provided within the prime retail shopping frontages conforming to SH2 (see Chapter 9) where, in accordance with policy TC2 there is an existing under-representation of class A1 uses. c) It should normally provide or contribute to the provision of facilities for shopping, leisure, entertainment or other community services as appropriate to the scale and location of the site in the town centre; or, if a community service use is not appropriate and the scheme is adjacent to a predominantly residential area, housing; and where appropriate the improvement of public transport accessibility. d) the scheme will have regard in to policies E5-6, and the relevant standards

9a.33 7.52The Council is concerned to ensure that the town centres continue to provide a focus for a range of employment generating activities and will seek to retain town centre sites and buildings in Class B or other employment uses. The Council considers that town centres provide the most appropriate location for major office development. These Town centres are generally areas of good public transport accessibility and provide a range of facilities for the use of employees. However, the Council would not permit uses which contribute to the character of the town centre and which provide valuable facilities for the Borough's residents to be displaced by office development. Furthermore, the Council is concerned to ensure that office development is acceptable in traffic and environmental terms, especially as a large part of each centre is designated as a conservation area. Hammersmith Centre, in particular, has been identified previously as become a strategic significant office location with many headquarters of international companies and is identified in the

Chapter 9A 349 London Borough of Hammersmith and Fulham: UDP Alterations

Plan (see policy HTC1) as the preferred location for major office development in the borough. The level of floorspace available for letting is extremely low and additional floorspace could be permitted subject to the plot ratio standard. The other town centres, especially Fulham, provide a focus for smaller office development and demand is strong for good quality office floorspace. more important than the other town centres for reasons of greater accessibility. Therefore, should significant new office development be proposed it is considered more appropriate in Hammersmith Centre. Nevertheless, it is the Council's view that major new office development is unlikely to conform to the policies of the Plan for reasons of traffic congestion and conservation and townscape. The available development opportunities within the town centres are few and the Council is concerned to protect the existing floorspace from change of use. The displacement of B Class activities will be considered only if a proposed use, generating significant employment, adds to the viability and vitality of the town centre and subject to the availability of alternative B Class accommodation in the town centre. ("Similar activities" refers to a comparable employment generating use not within any Use Class. See also policies E3A, E5 and E6.)

9a.34 7.53 Within shopping frontages office development would be inappropriate without the retention of or additional provision of A Class uses on the ground floor. Even if a shopping or related use is not displaced the Council would wish to see this use installed at ground floor level in shopping areas of the town centre to maintain a varied and interesting shopping frontage. The use should be that appropriate to the status of the shopping frontage (see Chapter 9). The need to retain a variety of uses on the ground floor in order to keep streets lively and the avoidance of blank frontages has been highlighted in PPG13.

9a.35 7.54 The Council believes that in most circumstances town centre sites should be appropriately developed for a mix of uses rather than just business use. This would add variety and interest to the town centres. On smaller infill schemes wholly business schemes may be more appropriate subject to a) and b). For larger schemes the Council believes that business development should assist in the provision of facilities which might not otherwise be provided and which would benefit the range of facilities available within the town centres in accordance with Circular 1/97 16/91, Planning Obligations.

TC6 HOUSING a). Planning permission will not be granted for developments which would result in a loss of residential accommodation in town centres, in accordance with policy HO1. b). There will be a presumption that affordable housing will be provided in conjunction with any proposal which is exclusively for housing or includes housing, in accordance with policy HO5. c). Where residential development is acceptable, a higher residential density than provided for in development standard S2 will only be permitted, if environmental quality, residential amenity and public safety is not compromised and subject to policy HO7. d). Where residential development is acceptable, developments that have no off-street car parking or a reduced level of car parking will only be permitted if

Chapter 9A 350 London Borough of Hammersmith and Fulham: UDP Alterations

it can be ensured that this will not give rise to additional on-street parking demand.

e). Change to residential use of existing floorspace above ground floor town centre premises will only be permitted, if this does not give rise to the displacement of existing businesses, or to the loss of premises last used for, and suitable for continued use for, business activity.

9a.36 Residential is an appropriate use in town centres. It can increase activity in the centres, stimulate shopping and other services and can help to foster a lively, attractive and welcoming environment thereby increasing feelings of safety and security. There is significant existing housing in the borough’s town centres which UDP policies will continue to protect, and new residential will be an appropriate element in mixed use development where there is access to a range of transport and other facilities and when residential amenity will not be compromised.

9a.37 Because of their good accessibility and provision of shopping and services, town centres are especially suitable for affordable housing and car free or reduced car residential developments ( see policies HO5, TN15 and standard S18). The provision of new housing without car parking or with reduced parking will permit higher density developments to be considered (see standard S2) and will particularly benefit the large number of Londoners who do not own a car. Reducing the amount of space allocated to car parking will also enable the enhancement of the urban environment and the introduction of a wider range of speed reducing (Home Zone) measures. The mechanism by which car-free or reduced car parking developments will be implemented will take the form of legally-binding agreements excluding present and future tenants and owners from applying for and obtaining off-street residents' parking permits.

9a.38 Accommodation above shops and other premises can provide an important source of housing. However it can also meet the needs of small businesses which benefit from a town centre location and, in the case of some uses, provide a service which can be integral to a visit to the town centre, for example a solicitor or accountant, or a medical service. The Council wishes to retain upper floors in business and non-residential use where the premises are, or have been, in business use and are viable for continued non-residential use. However, where premises are not in beneficial use or suitable for continued use for business activity then residential changes of use will be considered.

TC8 SECTION 106 AGREEMENTS TOWN CENTRE DEVELOPMENT AND INFRASTRUCTURE PROVISION

The Council will assess all town centre development schemes in relation to their sustainability and contribution to the regeneration of the town centre, their impact on the locality and the community (and the contribution that they should make towards alleviating any adverse impact), meeting relevant community needs, and ensuring that the schemes are well integrated in the town centre. This will include particular consideration of: i. transport and highway impact and the need to enhance public transport and cycle provision; ii. the local townscape and need for environmental enhancement;

Chapter 9A 351 London Borough of Hammersmith and Fulham: UDP Alterations

iii. pedestrian movement and safety, including the needs of people with disabilities; iv. the means by which local employment needs may be alleviated by jobs created in the development or during its construction; v. the need to meet local affordable housing need where residential use is appropriate; vi. the need to make provision for local community services; vii. the environmental impact on local residents and other town centre users and activities, particularly in relation to activities proposed to take place in the evening where policy CS2B will apply to closing times.

Where proposals for development would create a direct need for additional or improved infrastructure provision, services and facilities, or for environmental improvement, planning conditions may be imposed or developer contributions sought to secure provision of the necessary additions or improvements. in addition, where appropriate, obligations will be used to enhance the quality of development and the wider environment, and to ensure it makes a positive contribution to sustainable development, providing social, economic and environmental benefits to the community as a whole.

9a.41 The council will pursue sustainable regeneration strategies, for each of the three town centres which reflect and build upon the characteristics of the centres.

In order that developments contribute to the wider objectives and circumstances pertaining to each centre, it is expected that developments will be subject to conditions and planning obligations. Planning obligations will be used in circumstances to overcome concerns about proposals that are otherwise appropriate and acceptable and which can provide benefits to the wider community. In accordance with Government Circular 1/97 or any successor circular. These, these obligations will be fairly and reasonably related in scale and kind and will be expected to relate to the implementation of other important policies in the Plan Measures to improve public transport accessibility and to enhance facilities for pedestrians, including people with mobility difficulties, and cyclists

9a.41 The Council will pursue sustainable regeneration strategies, for each of the three town centres which reflect and build upon the characteristics of the centres. Development proposals, subject to their nature and scale, may give rise to additional demands for infrastructure provision, services and other facilities in town centres. If existing provision serving a site is inadequate to accommodate the increased demands arising from a proposed development, and no additional provision is envisaged, permission for the development may be refused.

However, using planning conditions and obligations, the council will work with developers to overcome deficiencies and thus allow proposals that would otherwise be unacceptable to go ahead. In addition, it will also expect development proposals to make a positive contribution to sustainable development, providing social, economic and environmental benefits to the community as a whole. Obligations will be used in accordance with Government Circular 1/97,or any successor circular. These obligations will be fairly and reasonably related in scale and kind and will be expected to relate to the implementation of other important policies in the Plan and to strategies, including the council’s Visitor Strategy and Crime and Disorder Reduction Strategy. Measures to improve public transport accessibility and to enhance facilities for pedestrians, including people with mobility difficulties, and cyclists and that support town centre regeneration initiatives will be

Chapter 9A 352 London Borough of Hammersmith and Fulham: UDP Alterations

high priorities (see also policy CS11 specifically regarding community services and policy SP1 regarding site proposals in the Plan).

HAMMERSMITH

Proposals Map: Include properties to the rear of 120-164 King Street in the town centre.

HTC1 OFFICES

The preferred location for major class B1(a) office developments of 2,500 sq m and above is in Hammersmith town centre.

9a.42 Hammersmith Centre, in particular, has been identified previously as a strategic become a significant office location in the borough more important than the other town centres for reasons of greater acciessibility. Therefore, should significant new office development be proposed it is considered more appropriate in hammersmith Centre. Nevertheless it is the Council’s view that major new office development is unlikely to conform to the policies of the Plan and reasoons of traffic congestion and conservation and townscape. with many headquarters of international companies situated in and around the Centre. The level of floorspace available for letting is extremely low and additional floorspace could be permitted subject to the plot ratio standard as set out in Standard S1.1 – Plot Ratio. In the highest public transport accessibility level, floorspace in excess of this standard may be permitted subject to the capacity of the public transport system and provided that proposals demonstrate a high quality design and respect for local buildings and the urban fabric.. The available development opportunities within the town centre are few and the Council is concerned to protect the existing floorspace from change of use. The displacement of B Class activities will be considered only if a proposed use, generating significant employment, adds to the viability and vitality of the town centre and there is no prospect of continued business use. ("Similar activities" refers to a comparable employment generating use not within any Use Class.) (See also policy TC1 concerning major generators of travel and transport demand)

9.43 Within the King Street prime retail frontage there is Kings Mall, an enclosed shopping centre. A smaller mall, the Broadway Centre, exists at Hammersmith Broadway, whilst in Shepherd's Bush there is the Concord Centre.

HTC3A HAMMERSMITH MARKET

HTC3A/1 The Council will support the retention of existing street markets in Hammersmith and Fulham, and the market at Shepherd’s Bush, together with the retention of associated storage facilities. Development will not be permitted if it would prevent the use of the Lyric Square for market use.

9a.45 Hammersmith market is situated at the junction of Hammersmith Grove and King Street. The number of stalls has declined over the years, but the presence of the market adds to the choice of goods that are available in the centre and provides interest and vitality. The existing market is situated within the area proposed for Lyric Square improvements. The market could be retained provided it can be enhanced in such a way so as not to prejudice the new square’s function as a pedestrian/recreation and performance area. Fixed market stalls and other structures

Chapter 9A 353 London Borough of Hammersmith and Fulham: UDP Alterations

could compromise the use of the square for public events depending on their design and location.

TN11 ROAD PROPOSALS

1994 Policy TN11 deleted

HTC6 ARCHAEOLOGY

The Council will protect the archaeological heritage of the Hammersmith Creek, Queen Caroline Street and Broadway archaeological priority area which overlaps the town centre boundary. The Council will require a preliminary archaeological site evaluation and assessment before proposals are considered. The Council will implement this policy using planning conditions and legal agreements (see also policy EN7).

9a.48 There is a long history of settlement and activity in this part of the borough, and given the importance of river communication it is probable that the earliest settlement would have been close to the river. Part of the town centre is included within an archaeological priority area, and Roman, Saxon and medieval finds have been discovered. It is important that all developments are properly planned and assessed for their archaeological implications before applications are submitted, and developers should consult English Heirtage at an early stage where development proposals may affect the buried heritage.

HTC7 SITE PROPOSALS

1. SITE 17 HAMMERSMITH CENTRE PARK

1994 Policy Site 17 deleted

2. SITE 27 HAMMERSMITH AND CITY LINE STATION CAR PARK Owner: LRT Area: 0.63 hectares

A mixed use development including of shopping, B1 offices and community services (including arts or cultural or entertainment or recreation activities, workplace nursery, creche, public conveniences).

The site is highly accessible, and provides an opportunity to enhance the town centre by development of the site for a wide range of appropriate uses. Ground floor uses, including retail, will need to ensure they add to the vitality and viability of the town centre. The council does not wish to specify the type of retail that should be provided, but it will look towards uses that assist in the regeneration of this part of the centre and will complement the existing retail mix of the town centre. In respect of the quantity of retail, the amount should not exceed 2500 sq m unless it satisfies policy TC1. The design of any scheme should have ground floor uses that will provide variety and interest in the townscape. There could be substantial benefits from combining this site with the Underground station and other sites (namely Sites G Wimpey building and F Hamersmith Palais) in the area to form a comprehensive

Chapter 9A 354 London Borough of Hammersmith and Fulham: UDP Alterations

development. Development with or without the adjoining land will be expected to be accompanied by appropriate measures to enable and encourage satisfactory access to the site by non-car means of transport. In particular, the capacity of local public transport must be sufficient relative to the amount of development proposed on the site. There must also be measures to allow for the safe and convenient increase in pedestrian movement that will result from the development in view of the high level of such movement at present.

Principal policy references in other chapters: EN2, EN2A, EN2B,TC4, TC5, TC7, TC8, CS2A

3. SITE 75 NIGEL PLAYFAIR AVENUE CAR PARK AND CINEMA

1994 Policy Site 75 deleted

4. SITE F HAMMERSMITH PALAIS, SHEPHERDS BUSH ROAD

Owner : Private Size: 0.41 ha

Leisure uses with or without other appropriate town centre uses.

The closure of the Hammersmith Palais has led to uncertainty over the future of the site, and to the submission of a planning application for office and leisure use. Although the premises have been reoccupied by a leisure use, the Council, in accordance with UDP policies, wishes to emphasise that the site should be retained in leisure use appropriate for a town centre. B1 offices and other uses appropriate to Hammersmith town centre may be acceptable, but only if these are necessary to enable leisure uses to remain on site on the ground floor and at an amount no less than the existing leisure floorspace. There could be substantial benefits from combining this site with other sites in the area, including Site 27 Hammersmith and City Line station car park and Site G Wimpey building. In addition, the neighbouring Hammersmith fire station building is expected to become surplus upon completion of a new fire station further along Shepherds Bush Road (See Site 66). Any new development should have regard to the site’s position within the Hammersmith Broadway conservation area.

Principal policy references in other chapters: EN2, EN2A, EN2B, TC4, TC5,CS2, CS2A, TC8

5. SITE G WIMPEYS, 26-28 HAMMERSMITH GROVE

Owner: Private Size: 1.014 ha

B1 office with the possibility of other use appropriate to Hammersmith town centre.

This site is occupied by substantial office buildings. Whilst these could continue in office use, there could be substantial benefits in terms of landuses, infrastructure and

Chapter 9A 355 London Borough of Hammersmith and Fulham: UDP Alterations

design from redevelopment which took into account the opportunities provided by a town centre location. There could be additional benefits from combining this existing office site with other sites in the area, including Site 27 Hammersmith and City Line station car park and Site F Hammersmith Palais.

Principal policy references in other chapters: TC5, TC8

FULHAM

FTC1 BUSINESS

The town centre is a suitable location for smaller B1(a) development, normally as part of mixed use schemes.

9a.49 Fulham town centre does not have the same scale of office development as Hammersmith town centre, but it is nontheless important for smaller local office uses. The central area of Fulham is dominated by small to medium size businesses.The Central Fulham Strategy suggested that the existing business base in Fulham is strong and is likely to grow in respect of professional and business services, leisure activities, media and related activities. The report concluded that the main threat to continued growth and retention of such firms is the inadequate supply of appropriate office and commercial space. As part of mixed use schemes the Council will look towards the provision of business units to sustain the office sector in Fulham town centre, thereby providing an opportunity of local jobs and helping to diversify the uses in the centre. However, because of the linear nature of the town centre, the proximity of residential streets and townscape constraints, there are limits to the number of sites which are, and will be likely to become, available for office uses. In addition, there are other uses which would be appropriate for the centre. Premises above shops will provide suitable accommodation for small office uses.

9a.52 Prime retail frontage policy normally seeks to retain two thirds of the length of frontage in Class A1 use. However, within that part of the prime retail frontage consisting of 312-406 North End Road and 1-19a and 2-24 Jerdan Place the Council considers it particularly important for there to be a significant presence of Class A1 uses. These parts of the centre include the most modern premises and contain key town centre retailers; they will provide an important complementary balance to the new Fulham Broadway development. Therefore, to protect the key areas of Fulham town centre frontage identified above, the Council will resist further change out of Class A1 use over and above normal prime retail frontage quota policy.

FTC4 STREET MARKET

The Council will support the retention and improvement of the existing street market in Hammersmith and Fulham, and the market at Shepherds Bush, together with the improvement of storage facilities. (See also policy for Sites 63a and 63b).

9a.53 The extensive market in North End Road is a dominant feature. Over the years the number of stalls has declined, but there are still over 70. Surveys associated with the preparation of the Central Fulham Strategy for Regeneration revealed that the market is generally popular with local residents and that there is a synergy between the market and retailers. The Council considers it is important for the market to continue to help sustain the vitality and viability of the centre, but at the same time its

Chapter 9A 356 London Borough of Hammersmith and Fulham: UDP Alterations

environment and appearance requires improvement. Through the use of Single Regeneration SRB 5 funding and Section 106 monies obtained from the Fulham Broadway development, the Council will pursue initiatives to improve the appearance and operation of the market. In addition, a replacement market storage building will be provided in Coomer Place as part of the development proposals for the Coomer Place sites (Sites 63A and 63B).

FTC7 ARCHAEOLOGY

The Council will protect the archaeological heritage of the Walham Grove archaeological priority area which overlaps the town centre boundary. The Council will require a preliminary archaeological site evaluation and assessment before proposals are considered. The Council will implement this policy using planning conditions and legal agreements (see also policy EN7).

9a.57 The area of the original medieval settlement, around Fulham Broadway and Vanston Place/Jerdan Place is designated as an archaeological priority area. It is important that all developments are properly planned and assessed for their archaeological implications before applications are submitted, and developers should consult English Heirtage at an early stage where development proposals may affect the buried heritage.

FTC8 SITE PROPOSALS

1. SITE 63A COOMER PLACE, (southside) Owner: Council/Private Area : 0.34 hectares

B1 or residential, with appropriate town centre use of listed building; access/offices for A1 Garage. enhancement of the appearance of the Crowthers building and its forecourt.

2. SITE 63B COOMER PLACE, (northside) Owner: Council/Private Area: 0.25 hectares

Market stores, Engineer's sub-depot, car park and realigned Coomer Road and Mews.

There are several parcels of land in and around Coomer Place which would benefit from a comprehensive replanning of the area. To the south of Coomer Place the land is in a variety of ownerships and is occupied by a variety of uses, including 282 North End Road (Grade II Listed Building) which should be retained and its appearance and setting improved. A number of the buildings are in a state of disrepair which contributes towards a deteriorating environment. The site's location sandwiched between Fulham Town Centre and Harold Wilson House, means that it is suitable for a variety of uses. The Council is preparing a development brief for the major part of the site which will look towards a variety of town centre uses, including B1 or residential, and retention of the Listed Building. It is proposed that the A1 Garage entrance and offices would either remain or be replaced if the existing buildings are included in any proposal for the development brief site.

Chapter 9A 357 London Borough of Hammersmith and Fulham: UDP Alterations

To the north of Coomer Place the land is primarily in Council ownership. It was laid out in its current uses in the 1970s and 1980s, but the arrangement of the uses is not considered to be the most efficient use of the land. Consequently, it is proposed that the uses are rearranged with the priority of relocating and improving the vehicular service access to the shops in North End Road. The Council will look towards development of this site being linked to the development of the site to the south of Coomer Place.

Planning permission for affordable housing and replacement market storage building exists for the combined northern site and rear of the southern site If implemented, this scheme would leave the Crowthers building available for town centre uses which would help assist the regeneration of North End Road.

Principal policy references in other chapters: E2, TC5, EN4, HO5, EN4

3. SITE C FORMER BT TELEPHONE EXCHANGE CAR PARK, THAXTON ROAD/NORTH END ROAD.

Ownership: Private Area: 0.25 ha

Community uses and employment uses.

Development should be appropriate for a town centre and should respect adjoining residential properties. Development could include small workshops and offices, leisure, hotel and retail and should relate to the other uses in the northern part of North End Road. It should recognise the potential to draw people into this area thereby assisting the revitalisation of this part of the town centre.

Principal policy references in other chapters; TC5, TC4, E11, EN2, EN2A, EN2B

5. SITE E FULHAM ISLAND SITE

Ownership: Private Area: 0.28 ha

Mix of town centre uses including A Class uses, B1 and residential.

The site occupies an important location in the town centre. It is currently in a mix of retail, restaurant and residential uses but has been subject to proposals for part refurbishment and part redevelopment. The Council wishes to see the retention of a mix of uses, including no loss of residential, thereby ensuring that the site continues to sustain the vitality and viability of the town centre. Any development proposals will need to retain listed buildings and buildings of townscape value, and to respect neighbouring buildings such as St John’s Church.

Principal policy references: TC3, TC6, TC7, TC8, EN2, EN2A, EN2B, EN4

Chapter 9A 358 London Borough of Hammersmith and Fulham: UDP Alterations

SHEPHERDS BUSH

Proposals Map: Include Site 36 and residential properties to the north of the town centre within the town centre.

SBTC3 SHEPHERDS BUSH MARKET

The Council will support the retention and improvement of the existing market in Hammersmith and Fulham, and the market at Shepherds Bush, together with storage facilities.

9a.61 The market runs beneath the Hammersmith and City line railway from Goldhawk Road to Uxbridge Road. It is an important feature of the town centre and has a variety of stalls which attract many visitors. The continuation of the market as a vibrant facility is very important for the sustainability of the town centre in the context of the White City Centre development. The market is privately owned, but the Council will encourage its retention and improvement as an attraction for local shoppers and visitors to the town centre, thereby helping to balance the impact of the White City Centre scheme.

SBTC5 ENVIRONMENTAL AND TRANSPORT IMPROVEMENTS

The Council will continue with the White City SRB programme of environmental and transport improvements for the town centre and will expect development schemes where appropriate to contribute to this programme, either directly through on-site improvements or indirectly as part of wider improvement projects.

9a.63 The development of the White City Centre and other proposals, such as the provision of a multiplex cinema and associated facilities at the Concord Centre, means that the town centre will be subject to significant change in the next few years. There is the opportunity to ensure that these developments contribute positively to the environment of the town centre. The availability of SRB funding and the use of Section 106 monies obtained through planning obligations in accordance with Circular 1/97 that are fairly and reasonably related in scale and kind to development schemes in the town centre will permit a number of environmental and transport improvements, with the objective of integrating the different parts of the centre, including enhancing Shepherds Bush Green, improvements to pedestrian safety, measures for cyclists and traffic management initiatives around Shepherds Bush Green

SBTC6 SITE PROPOSALS

1. SITE 36 WHITE CITY CENTRE SITE Owner: British Rail, LRT and Private Area : 16.20 hectares

Major shopping centre, B1 uses, workshops, entertainment (including cinema), affordable housing, shoppers' creche, workplace nursery, public open space, nature conservation area with construction of an access from the M41, retention and refurbishment of the listed building in an appropriate setting.

Chapter 9A 359 London Borough of Hammersmith and Fulham: UDP Alterations

The Council considers that this site should be developed comprehensively to provide a mix of uses and substantial employment. A major shopping centre and leisure uses will increase the status of the centre to a major strategic centre. The uses are appropriate because the site is on the edge of Shepherd's Bush Town Centre and could greatly improve the range of shopping and other facilities that are available to local residents and workers. The development will It is close enough to have the potential to be readily accessible by foot from other parts of the Town Centre so that existing and new shops and facilities can be visited in one trip. In addition, it has the potential to be readily accessible by users of public transport and by cyclists, and also to be readily accessible on foot from the surrounding local residential areas.

These potential locational benefits will only be realised, however, if the design of the scheme makes full provision for direct, safe, attractive and convenient access to the development by pedestrians, cyclists and users of public transport.

The site is within an employment zone but the proposal for a major shopping centre is considered to be acceptable in terms of policy E1(f), in view of the overall mix of uses and employment which a scheme developed in accordance with the policy would provide. The site is sufficiently large to make provision within the mix of land- uses for the needs of small businesses. Any shopping proposal would need to be acceptable in terms of policy SH9 10 and DETR Planning Policy Guidance Notes 6 and 13 and not have a serious adverse effect on any other town centre. In view of the potential to extend the town centre, Development on this site should take the opportunity to provide new leisure uses which can take advantage of the potential accessibility of the site, especially by public transport, cycling and walking. This is also important to help bring life and vitality into the area after normal shopping hours which will make it more vibrant, encourage other businesses and improve perceptions of personal security. Such provision will be additional to the retention or relocation of the Vanderbilt Tennis Club.

The amount of employment that can be provided on the site is sufficient to support a workplace nursery, in accordance with policy E6. A major shopping centre should also provide a shoppers' creche for the benefit of the large number of customers who are likely to have caring responsibilities for children.

Residential development is not normally acceptable in an employment zone but The Council considers that affordable housing should be provided here as an exception to the normal approach. This is because the residents are more likely to rely on public transport and walking and will benefit from close proximity to the existing and new shopping, job opportunities and public transport facilities. In addition, there is a very great need for such accommodation in the Borough and there is scope on this site, in view of its size and its location and the other uses proposed, to provide an acceptable residential environment without prejudicing the provision of a substantial amount of employment. The scale of provision would be a matter for negotiation between the Council and the developer.

The site includes the White City Woodlands nature conservation area, NCA Site BI3, which should either be retained or replaced within the development. Other areas of landscaped open land should be provided, particularly to enhance the appearance of the edges of the site or to act as a buffer between the scheme and existing housing to the south.

The listed building on the site needs a new use that will secure its future. Substantial internal works are likely to be needed at a high cost. Retention and re-use of the

Chapter 9A 360 London Borough of Hammersmith and Fulham: UDP Alterations

building should be an integral part of the development and financing of the comprehensive scheme for the whole site.

The quality of provision for access by non-car transport modes (i.e. walking, cycling and public transport), and the location and scale of the provision made for travel to the site by car, must ensure that there is a real choice of access available by a variety of means of travel. The balance of the quality of provision for non-car travel should be such as to encourage an overall decrease in both the number and length of private car journeys (in a accordance with the terms of policy TN12, Road Traffic Restraint, and the objectives of DETR Planning Policy Guidance Note 13); and, in no circumstances should more than 50% of journeys to the development be made by car.

The Council anticipates that the volume of customer road traffic associated with the proposal may be too great to be handled satisfactorily on Wood Lane. If so, a junction on the adjacent M41 is likely to be required as a pre-requisite and this will need detailed approval from the Department of Transport. However, the provision of such a junction would need to be carefully considered in the context of PPG13, in particular.

The access arrangements for the site will be expected to positively attract trips by non-car modes. In particular, there will need to be direct, safe, attractive and convenient pedestrian access routes to each part of the existing town centre and to the key local residential catchments to the east (via a new pedestrian bridge link to be funded by the development), to the south and the west. The site will need to be effectively linked to the Council's local cycle route network with provision for secure cycle parking. The accessibility to different facilities within the site for users of public transport must be of a high standard, and as good as, or better than, that available to car users. A developer contribution will be required to finance the provision of a new station on the West London Line at Shepherd's Bush (Uxbridge Road) to permit direct access to the site from the British Rail network of services.

Site has outline planning permission, granted in 1996, for a mixed use retail and leisure scheme. In July 2000 details of the outline permission, including siting, design and external appearance, were approved. In addition, an increase in A3 floorspace from 3558sqm to 20,468sqm and restoration, alteration and conversion of the Dimco Building as part of the new London Transport Bus Station were also approved.

Outline permission was granted in October 2001 for a new railway station on the West London Line, which will connect with the shopping centre via the new Southern Interchange. In March 2002 a new underground station on the Hammersmith & City line was also approved. A “section 106” legal agreement has been drawn-up covering an application for outline permission to extend the development to the south-west corner. This incorporates 29,100sqm of additional retail floorspace, a public library and a landscaped pedestrian entrance off Wood Lane.

Principal policy references in other chapters: EN2, EN2A, EN2B, EN3, EN4, EN27, TN5, TN6, TN11A12, TN17, TN18, TN21, HO5, E1, E2, TC5, E6,CS1, CS2, CS2A, CS11, SH9, TC2, TC4, TN11.

2. SITE 79 ODEON 1 CINEMA, SHEPHERDS BUSH GREEN

1994 Policy Site 79 deleted

Chapter 9A 361 London Borough of Hammersmith and Fulham: UDP Alterations

Chapter 9A 362 London Borough of Hammersmith and Fulham: UDP Alterations

CHAPTER 10: SITE PROPOSALS

RESTATEMENT OF PART I POLICY G9: LARGE DEVELOPMENT SITES IMPLEMENTATION 365

JUSTIFICATION FOR PART 1 POLICY G9: 365

INTRODUCTION 365

ISSUES 365 Planning briefs 366

POLICY CONTEXT 366 National 367 Regional 369 London 369

STRATEGY 370

PART 2 POLICIES 371

SP1 LARGE DEVELOPMENT SCHEMES PLANNING OBLIGATIONS 371

Related policies are in chapter 8 (CS11) and chapter 9a (TC8) 372

SCHEDULE OF SITE PROPOSALS 373 SITE 17 HAMMERSMITH CENTRE PARK 373 SITE 19 FULHAM FOOTBALL GROUND 373 SITE 22 CHELSEA CREEK 374 SITE 22A CHELSEA HARBOUR 2 374 SITE 23 LILLIE ROAD, 41-45 375 SITE 27 HAMMERSMITH AND CITY LINE STATION CAR PARK 375 SITE 29 HAMMERSMITH ROAD/LYONS WALK SITE 375 SITE 32 BRITISH GAS RIVERSIDE SITE AND NACOVIA WHARF (GREENHAM CONCRETE) 375 SITE 34 FULHAM HIGH STREET, 86-90 380 SITE 36 WHITE CITY CENTRE SITE 380 SITE 40 OLD OAK SIDINGS 380 SITE 47 IMPERIAL ROAD SITE 380 SITE 54 ST STEPHENS RC PRIMARY SCHOOL,GAYFORD ROAD, 29-35, 45- 49 382 SITE 55 LIME GROVE, 10-12 382 SITE 63A COOMER PLACE, (southside) 382 SITE 63B COOMER PLACE, (northside) 382 SITE 65 DU CANE ROAD 382 SITE 66 FORMER NORTHCROFT SCHOOL, SHEPHERDS BUSH ROAD 383

Chapter 10 363 London Borough of Hammersmith and Fulham: UDP Alterations

SITE 71 NACOVIA WHARF (GREENHAM CONCRETE) 383 SITE 72 WEST LONDON HOSPITAL, HAMMERSMITH ROAD 383 SITE 75 NIGEL PLAYFAIR AVENUE, CAR PARK AND CINEMA 383 SITE 76 RIVERSIDE STUDIOS 383 SITE 78 MARKS AND SPENCER WAREHOUSE, WOOD LANE 383 SITE 79 ODEON 1 CINEMA, SHEPHERDS BUSH GREEN 383 SITE 82 BBC WHITE CITY 383 SITE 83 KENNEDY INSTITUTE, BUTE GARDENS (including 11 - 17 Wolverton Gardens) 383 SITE 84 OLD OAK COMMON SIDINGS AND ADJACENT LAND ON OLD OAK COMMON LANE, OAKLANDS HOUSE, DEPOT ON OLD OAK LANE AND NATURE CONSERVATION AREA B12. 384 SITE A. RIVERSIDE INDUSTRY BLOCK (Albert, Swedish and Comleys [RMC Fulham] and Fulham Wharves in Townmead Road and adjoining LEB land) 384 SITE B. CARNWATH ROAD WHARVES (Hurlingham and Whiffen) 385 SITE H. A40/SAVOY BINGO CLUB VACANT LAND 386 SITE I. QUEEN CHARLOTTES HOSPITAL 386

Chapter 10 364 London Borough of Hammersmith and Fulham: UDP Alterations

CHAPTER 10. SITE PROPOSALS

RESTATEMENT OF PART I POLICY G9: LARGE DEVELOPMENT SITES IMPLEMENTATION

1994 Policy G9 replaced by altered text shown below

In addition to determining individual planning applications through the normal development control process, and negotiating planning obligations to address identified shortcomings in individual development proposals, the udp strategy will be implemented through the promotion of site specific development proposals. These site proposals, as well as proposals for other sites that come forward during the life of the plan will be expected to realise qualitative gains for the local community in pursuance of the economic and social objectives of the udp by:

• advancing the physical social and economic regeneration of the borough, focusing on the town centres of Hammersmith, Fulham and Shepherd’s Bush, and other areas of significant change • ensuring that specific and identified imperatives can be met in terms of the provision of affordable housing, jobs and services. • meeting the known site specific requirements of individual service providers • addressing complex or difficult sites where a range of policy issues need to be sensitively balanced.

JUSTIFICATION FOR PART 1 POLICY G9:

INTRODUCTION

10.1 Hammersmith and Fulham is an intensively developed Borough with relatively few areas of undeveloped land (apart from public open space). It faces a number of pressures and problems pressing issues as discussed elsewhere in the Plan, such as a shortage of affordable housing, open space deficiency and continuing unemployment in Chapters 1 and 2, and it It is essential that the sites that do become available for redevelopment have regard to regeneration strategies being developed by the Council to tackle these issues, and that sites are developed in a sustainable manner for the benefit of the community as a whole, because the opportunities to provide uses that the local community needs are very limited. The Council therefore expects the private sector, through the implementation of redevelopment schemes, to assist in meeting the needs of the community and in achieving the sustainable regeneration of the borough. This is especially important In recent years this has become even more important because local authorities are no longer in a position where they can buy, hold and develop land to meet the need of their residents for a wide range of facilities and services.

ISSUES

1994 paras 10.2-10.6 replaced with text below

Chapter 10 365 London Borough of Hammersmith and Fulham: UDP Alterations

The site policies in the Plan represent the means by which the council can most directly influence the pattern of development in the borough and tackle the issues that it faces. The sites have been identified as providing key opportunities to help meet the objectives of the council’s strategies. In particular, there are policies for certain town centre sites where mixed uses development will help meet important regeneration objectives to sustain and enhance the viability and vitality of these centres. There are also policies for sites that are required to meet London-wide strategic objectives, as well as policies for sites that are facing particular complex or difficult issues that cannot appropriately be resolved by the operation of the ordinary policies of the Plan.

In addition, there is a need for site proposals that meet the specific and identified requirements of service providers such as the emergency or other services.

The site policies are supported by additional text that is intended to clarify the policy and provide additional information of a general yet relevant nature to the site’s development.

It is not the intention of, and nor would not be possible for, the Plan to identify all development sites in the borough. Development proposals for sites of less importance or for larger sites that come forward during the life of the Plan will be dealt with through the normal development control process and, where appropriate, through the preparation of development briefs and other supplementary planning guidance.

Planning briefs

10.7 The Site Proposals schedule and the sites in the Town Centres chapter lists all the larger sites currently known to be subject to development proposals, with the Council's proposals for the development of these sites, taking into account the policies of the Plan. However, the individual proposals included in this schedule will often may need to be supplemented by a planning brief for the site because the Plan covers a period of 10 years. The circumstances that affect development sites can change very quickly and the planning process needs to be able to take account of these changes. In addition, during the life of the Plan, other sites will become available for development and, although the general policies of the Plan can will control the development of the site, the more detailed and specific guidance contained in a planning brief provides a clear statement of the Council's policy to the benefit of both the developer and the public. Such a planning brief will enable the Council to take into account any material considerations affecting the site and ensure that the development of the site will be relevant to the needs of the local community. Due regard will be had to the needs of servicing bodies such as Thames Water Utilities.

POLICY CONTEXT

10.8 There is a well-established legislative and planning policy basis for seeking to ensure that development projects, particularly large projects, provide clear and direct benefits to the local community.

Chapter 10 366 London Borough of Hammersmith and Fulham: UDP Alterations

National

10.9 Planning Policy Guidance Note 1 General Policy and Principles clearly states that:

"the town and country planning system is designed to regulate the development and the use of land in the public interest .... the planning system, and the preparation of development plans in particular, can contribute to the objectives of ensuring that development and growth are sustainable .... the planning system has a positive role to play in guiding appropriate development to the right place, as well as preventing development which is not acceptable. It must make adequate provision for development (for example, the new houses and workplaces the nation needs, and associated services such as roads and schools), and at the same time take account of the need to protect the natural and built environment."

“development plans should identify individual sites where development should incorporate a mixture of uses, with a suitable justification, and itemise those uses considered desirable”.

10.10 Planning Policy Guidance Note 12 Development Plans and Regional Planning Guidance states that: "Development plans should contain the local planning authority's policies and proposals for the development and use of land ..... In drawing up structure plans and UDPs, the Act and regulations together require authorities to have regard to ...... (amongst other things) ...... social, economic and environmental considerations".

“Policies in local plans may include those which relate to individual sites ... site specific policies in local plans provide a positive lead for development, certainty, and, by identifying sites for development, can demonstrate how the vision and strategy of the plan will be articulated in practical terms”.

Planning Policy Guidance Note 13 Transport expands upon the need to protect the environment and states that local authorities should: "By planning land use and transport together .... planning authorities can reduce reliance on the private car and make a significant contribution to the environmental goals set out in the Government's Sustainable Development Strategy" and that local authorities should adopt planning and land-use policies to:

"promote development within urban areas, at locations highly accessible by means other than the private car". and

"locate major generators of travel demand in existing centres which are highly accessible by means other than the private car".

PPG 13 also states that a mix of development in a locality determines its attractiveness and vitality. It states that:

"By providing a wide range of facilities at the local level, the need for people to use cars to meet their day-to-day needs will be reduced".

Chapter 10 367 London Borough of Hammersmith and Fulham: UDP Alterations

10.11 The 1990 Town and Country Planning Act requires planning authorities to have regard to the likely availability of resources when preparing the general policies and proposals in UDPs. PPG12 states that:

"All development plans should be realistic in this respect. The market will not produce unlimited resources for development in any particular locality".

The PPG continues by saying that:

"In order to give consistency to market expectations, plans should take account of national economic policies, the financial policies of the various implementing agencies and the likely availability for use of land, labour and other material considerations. For example, redundant, derelict or underused sites represent an important resource; the plan should ensure that such sites can be used in preference to green field sites wherever possible".

10.12 PPG12 also states that the provision of infrastructure is important in all major developments, and notes that infrastructure includes services like education and health services. It continues by saying, amongst other things, that planning obligations enable developers to advance infrastructure investment programmes to meet the needs of their site. Details of the operation of planning obligations are provided in Circular 16/91 1/97 Planning and Compensation Act 1991: Planning Obligations which states that they should be related to the proposed development and be fairly and reasonably related in scale and kind.

"The test of the reasonableness of seeking a planning obligation ..... depends on whether what is required:

(1) is needed for the development to go ahead ... ; or

(2) in the use of financial payment, will contribute to meeting the cost of providing such facilities in the near future; or

(3) is otherwise so directly related to the proposed development and to the use of the land after its completion, that the development ought not to be permitted without it .....; or

(4) is designed in the case of mixed development to secure an acceptable balance of uses; or to secure the implementation of local plan policies for a particular area or type of development ...... ; or

(5) is intended to offset the loss of or impact on any amenity or resource present on the site prior to development ...... "

The Circular continues by stating that if what is required passes one of the tests .... a further test has to be applied .... whether the extent of what is required is fairly and reasonably related in scale and kind to the proposed development. 10.13 PPG12 notes that:

"Policies and proposals that are likely to provide the basis for deciding planning applications ..... should be set out in the appropriate plan, which is subject to statutory procedures. But many authorities prepare planning guidance which supplements the policies and proposals of the plan itself (for example design guides for specific areas) and the Secretary of State believes this can provide helpful guidance for those preparing planning applications".

Chapter 10 368 London Borough of Hammersmith and Fulham: UDP Alterations

Regional

10.14 The Government in Regional Guidance for the South East (RPG9) provide a number of principles which will govern the development of the Region. These include:

“urban areas should be the prime focus for new development and for redevelopment”

“new developments should be well designed and consistent with the overall strategy for urban renaissance and sustainable development”

"all development should be planned in ways which work towards securing the objectives of sustainable development”.

...the fullest possible use should be made of opportunities for redevelopment and recycling urban land. The aim should be not only to secure development and urban regeneration, but also to improve the environment .....

...development should respect the Region's valuable environmental features .....

Planning and transportation policies should be co-ordinated to .... help reduce congestion in areas of development pressure".

The Guidance states that in London:

"authorities should bear in mind the need to facilitate developments which will enhance London as a place to work, live and undertake leisure activities, whilst simultaneously conserving its popular environmental features ...."

London

10.15 Strategic Guidance (RPG3) states that gives little guidance on how planning policies should meet the community needs of the population, apart from stating in para. 8 that:

"The guidance does not deal with aspects that are essentially local and which are best dealt with by the local planning authority in preparing the UDP".

10.16 However Guidance does state that, used correctly, planning agreements can assist the best use of land and a properly planned environment (para. 24).

“There should be a clear policy indication of the likely acceptable land uses and, where appropriate, specific proposals in the UDP ... promoters of regeneration activities and bidders for funds must have regard to the policies and proposals set out in UDPs”.

10.17 LPAC in its 1994 Advice on Strategic Planning Guidance stated that:

"in principle, mixed uses maintain choice, vitality and a broader economic base as well as minimise distances travelled ...... with individual developments, a balance must be struck between ensuring the vitality of the development itself and achieving

Chapter 10 369 London Borough of Hammersmith and Fulham: UDP Alterations

its harmonious integration with surrounding uses. The scale of development may determine whether the mix of uses is best specified in a planning brief or a UDP"

LPAC continued by recommending that Boroughs:

"should encourage a mix of land uses and mixed use developments through planning mechanisms of appropriate scale and type, while taking care in specified locations to maintain the viability or amenity of existing uses".

10.18 LPAC considers that the Government should:

"Clarify the contribution that development proposals can make to achievement of strategic planning aims for the Capital, so as to encourage partnership in addressing the uniquely intense and sensitive development pressure facing London"

In respect of planning obligations, undertakings and other arrangements LPAC considers that depending on circumstances these could relate to community facilities, childcare, employment training and other measures.

STRATEGY

10.19 Although much redevelopment is taking place in Hammersmith and Fulham, the number of sites likely to become available, particularly larger sites, is limited and therefore it is important that the Council ensures that land is developed in an efficient and equitable a manner. It is therefore a major priority to ensure that new development, for housing, employment, shops, etc., helps to meet the needs of the local communities including those who live, or work in, or visit the Borough, especially those who are most disadvantaged. In addition, the Council must will ensure that existing uses that are beneficial to the community are not lost as a result of the development process.

10.20 In order to achieve development that is of benefit to the community, most larger sites will, where appropriate, need to be developed for a mix of uses which would provide benefits both to the developer and to the community. in order to be as clear as possible to the developer and the local community, the Plan sets out specific site policies and, where necessary, separate guidelines will be issued in the form of a planning brief. These planning briefs will set out clear policies to identify the mix of uses that is appropriate on each site, and how these uses are related to the capacity of the transport network, and to the density and scale of development in the local area. In addition planning briefs will be prepared, where appropriate, for other sites which become available during the life of the Plan.

The policies for the sites included both in this chapter and in chapter 9A Town Centres, and identified on the Proposals Map, are intended to assist in meeting the objectives of Council strategies. The Council will promote the development of these sites within the Plan period and will assist, where appropriate, in developing acceptable proposals. There are policies for town centre sites that will complement and sustain town centre regeneration strategies; there are policies for complex sites that require detailed policy guidance, there are policies for sites that that will achieve Council objectives for affordable housing and open space provision, and a policy for a service provider, namely a school extension site.

Chapter 10 370 London Borough of Hammersmith and Fulham: UDP Alterations

10.21 The Council will ensure that proposals have regard to the nature and location of the area in which they are proposed, to the needs of the area and to any regeneration programmes which exist, and that they do not adversely affect the character and appearance of the area. Proposals will be expected to be in accordance with the Government's and the Council's objective to reduce the need to travel, especially by car, thereby lessening environmental impact and contributing to the achievement of a sustainable development future.

PART 2 POLICIES

SP1 LARGE DEVELOPMENT SCHEMES PLANNING OBLIGATIONS

Development will only be permitted on the proposals sites identified in Chapters 9a and 10, if the scheme includes the necessary services, facilities and infrastructure, specified in the site proposal. On other large sites that come forward throughout the plan period, the council will seek provision of similar levels of facilities, services and infrastructure.

Planning conditions may be imposed or developer contributions sought to secure provision or improvement of appropriate or necessary services, facilities and infrastructure identified in the plan’s proposals, and any others that would contribute to sustainable development or benefits to the community or for which the proposals for development would create a direct need.

The policies set out in this chapter and in chapter 9A for specific sites are intended to assist in the regeneration of the borough and to meet community needs. The detail for individual proposals differs. In some cases the proposals indicate the services, facilities and infrastructure that are necessary if development in the form envisaged by the council is to go ahead. In other cases this level of detail is not provided, and the nature and scale of the development proposals will need to be assessed against existing service provision in the locality. If the inadequacy of services, facilities and infrastructure cannot be satisfactorily resolved through the use of planning conditions imposed in accordance with Circular 11/95, planning obligations may be sought from or offered by, developers in accordance with Circular 1/97.

Policy SP1 is also intended to highlight that the council will wish to work with applicants and developers to not only overcome deficiencies in schemes that come forward on the site proposals in the Plan and on other sites that come forward for development throughout the Plan period, but also to enhance these schemes to ensure that they are sustainable and that they achieve benefits for the local community. The Government in the consultation paper, Reforming Planning Obligations December 2001, notes that “it is important for local communities to feel that they are receiving some benefit for accepting development in their areas”. The council wishes to ensure that development contributes as fully as possible to regeneration of the borough, to alleviating social exclusion and poverty and to achieving sustainable development through new technologies and other initiatives that reduce environmental impact. The council will particularly consider the following:

I. transport and highway impact and the need to enhance public transport, cycle provision, and provision for pedestrians; II. pedestrian movement and safety, including for people with disabilities;

Chapter 10 371 London Borough of Hammersmith and Fulham: UDP Alterations

III. the means by which local employment needs may be met by jobs created in the development or during its construction; IV. the need to meet local affordable housing need where residential use is appropriate; V. the need to make provision for local community services and facilities and open space and children’s playspace; VI. the environmental impact on local residents and others; VII. the local townscape and need for environmental improvement; VIII. the need for environmental impact assessment.

Related policies are in chapter 8 (CS11) and chapter 9a (TC8)

Chapter 10 372 London Borough of Hammersmith and Fulham: UDP Alterations

SCHEDULE OF SITE PROPOSALS

Site proposals will take precedence over policies included in Part 2, chapters 4-9. The principal policy references for each site proposal are for guidance only. These and other appropriate Part 2 policies will apply to the site to the extent that they do not conflict with the specific site proposal. Where sites were included in the Borough Local Plan the numbers are the same.

SITE 8 WILLIAM MORRIS WAY SOUTH SITE

1994 Policy Site 8 deleted

SITE 17 HAMMERSMITH CENTRE PARK Hammersmith Bridge Road Owner: Council Area : 1.10 hectares

(see Town Centres chapter)

SITE 19 FULHAM FOOTBALL GROUND Owner: Private Area: 2.60 hectares a) Retention and enhancement of listed buildings in association with a football or other spectator sports or entertainment use appropriate in this location; b) Provision of a public riverside walk with links inland as appropriate; and c) Residential development reasonably necessary to enable the achievement of these objectives and in accordance with normal housing and environment policies.

The site is subject to a number of complex planning issues. The site It contains a rare group of listed buildings. There is a need to have a use (preferably the sports use for which they were designed) that will preserve them largely intact and in an appropriate setting. Achieving this in a viable and satisfactory way is likely to entail the incorporation of an enabling development within the site; and, for this, a residential use is proposed as being the most appropriate.

There will be difficulty in balancing the competing demands of this residential use and of the sports/entertainment use which are together likely to underpin the future of the listed buildings. In this context, the minimum reasonable requirements for a sports ground (for playing and watching the game and in particular for the safety of spectators) will be a dominant demand on the limited space available - while the needs of the enabling residential development (for access, parking, amenity etc.) will have to be met as far as practicable to ensure a viable and acceptable scheme. It is recognised that there may be little realistic prospect of achieving affordable housing

Chapter 10 373 London Borough of Hammersmith and Fulham: UDP Alterations

as part of this site's development due to the economics of a development that safeguards the listed buildings and associated use.

The site is in a within Fulham Reach conservation area and in a prominent riverside location - and the setting of the site should therefore be protected as far as possible given the other demands on the site. In balancing all these demands, the need to preserve the listed buildings in an appropriate use and setting including provision for spectator safety, will be paramount. In the circumstances of this case, it may be necessary to allow some relaxation of normal policies and standards applying to other aspects of the development, but in such a case, the Council will seek to ensure that its impact on the site's surroundings is kept to the minimum necessary to enable the future and appropriate setting of the listed buildings to be secured.

The council has resolved to grant planning permission and listed building consent subject to completion of a Section 106 Agreement for a new 30,000 seat football stadium, residential, leisure, conference and food and drink uses and associated football facilities.

Principal policy references in other chapters: G5(b), G8, EN2, EN2A, EN2B, EN3, EN4, EN31, EN31A, EN33, EN34, EN37, EN38, HO5, CS1, CS2A, CS3.

SITE 22 CHELSEA CREEK Owner: LRT Area : 0.38 hectares

Nature Conservation

This is the only part of the creek not filled in. As such it provides a valuable habitat complementary to the river Thames and its foreshore. It also forms part of a wildlife corridor for flora and fauna along the West London Railway line. It is also a recreational amenity because of its value for fishing. The Council will encourage enhancement of the creek, particularly in conjunction with any development of adjoining land.

Principal policy references in other chapters: EN27, EN28

SITE 22A CHELSEA HARBOUR 2 Owner: LRT and P&O Area: 2.01 hectares

Residential, open space and riverside walk

The site consists of land in two ownerships. Part is in P&O’s ownership and is landscaped and linked to the existing Chelsea Harbour development, and part is occupied by an oil storage tank and other LUL land. Both parcels of land are subject to the original planning permission for Chelsea Harbour, and could be developed for residential and amenity space in accordance with that permission. Upon decommissioning of the Lots Road Electricity Generating Station in the Royal Borough of Kensington & Chelsea, the oil storage tank site will no longer be rquired by LUL and will become available for development.

A mix of residential and open space use would be appropriate for the combined P&O and LUL site. In accordance with affordable housing policies, on such a site the

Chapter 10 374 London Borough of Hammersmith and Fulham: UDP Alterations

Council would normally expect to see the maximum amount of affordable housing. The 1986 scheme included funding for off-site affordable housing, but this does not negate the need for further provision. The oil storage tank site is considered the most appropriate location for public open space, and provides the opportunity for enhancement of the neighbouring Chelsea Creek nature conservation area (see also policy for Site 22). The provision of the riverside walk will also be required. The amount of new open space to be provided will be considered against policies EN23 and EN23B. The provision of the riverside walk will also be required [and appropriate river based and river related facilities will be welcome, provided that they do not undermine the primary development objectives for the site and are in accordance with policy EN32.

Principal policy references in other chapters: HO5, E3, EN31, EN23, EN23B, EN27, EN28, EN31, EN31A, EN32, EN31X, EN33, EN34, EN34A

SITE 23 LILLIE ROAD, 41-45 Owner: Private Area : 0.11 hectares

Residential or B1 Use

This site is most suitable for a residential or B1 use. The site is on Lillie Road, which is both narrow and congested at this point and therefore not suitable for on-street servicing. The narrow street frontage of this site makes the provision of off-street servicing by large vehicles very difficult and therefore the site should only be developed for a use that does not require large service vehicles. A residential or B1 use would also be compatible with the residential use on the eastern boundary of the site and on the north side of Lillie Road. The height of any development should take into account the particular needs for daylight and sunlight of the adjacent single- storey St. Oswald Studios.

An application for an hotel use was refused planning permission and may be subject to an appeal. Principal policy references in other chapters: HO5, E4

SITE 27 HAMMERSMITH AND CITY LINE STATION CAR PARK Owner: LRT Area: 0.63 hectares

(see Town Centre chapter)

SITE 29 HAMMERSMITH ROAD/LYONS WALK SITE

1994 Policy Site 29 deleted

SITE 32 BRITISH GAS RIVERSIDE SITE AND NACOVIA WHARF (GREENHAM CONCRETE) Owner: British Gas Private Area : 6.77 7.95 hectares

Chapter 10 375 London Borough of Hammersmith and Fulham: UDP Alterations

The site is to be developed comprehensively, to provide a mix of employment uses, riverside public open space accessible to the public, housing and associated facilities. The development is to provide a high-quality environment and townscape which opens up the riverside and creates linkages between the existing residential area and the riverside. Proposals for the site must provide:

(i) A park, accessible to the public, of at least 1.8 hectares (4.45 acres) linking the existing residential area west of Townmead Road to the riverside and contiguous with the public open space on the adjacent site to the south. The park should have an attractive riverside frontage. (policy EN23).

(ii) A riverside walkway accessible to the public linking the site to adjacent sites, with pedestrian linkages from Townmead Road. (policy EN34).

(iii) A section of the Sands End riverside local distributor road (William Morris Way: policy TN11) to continue the existing section of that road and to join with Townmead Road at a point and in a manner to be agreed with the Local Planning Authority with due regard to minimising traffic impact on residential properties and to avoid severance of the proposed park.

(iv) Public conveniences related to the park and riverside walk.

(v) A mix of uses on the residual part of the site (i.e. the whole site minus (i)-(iv) above), as follows: a) Employment uses generally in accordance with policy E1, and having regard to the need to make provision for small businesses. b) Residential use within which the Council will negotiate to secure the maximum reasonable proportion of permanently available affordable housing on the site to meet the needs of households on low to middle incomes including key workers, in accordance with policy HO5. c) The Council considers that an appropriate mix of uses would be such that employment and residential use each occupy approximately half of the residual part of the site. Some variation in this mix may be desirable in order to achieve a satisfactory layout, design and appearance for the development, and, in particular to take account of the results of the study referred to in (d) below. d) In order to assess the relative quantities of employment and residential development which would be acceptable on this site, a study must be undertaken within the context of the Plan's overall strategy of restraining the use of private cars for journeys to work. The study will take account of all the relevant circumstances of the proposed development, including the predicted levels of journey-to-work trips generated by both the employment and residential elements of the proposed development, and will have regard to the predicted impact of other potential developments in the area. The study will also investigate whether, and to what extent, the level of public transport accessibility at the site is likely to be improved, and the timing of any such improvement.

Chapter 10 376 London Borough of Hammersmith and Fulham: UDP Alterations

The findings of such a study will be used to establish the quantum of development on the site, in preference to the use of maximum plot ratios based simply upon the application of the Council's Public Transport Accessibility Level methodology, as referred to in standard S1.

The study must be commissioned by the developer, on the basis of a brief which has been jointly agreed by the Council and the developer, and must be funded by the developer.

(vi) View corridors through the development, including one on the line of either Tynemouth or Lindrop Streets, which should provide an open space link to Townmead Road, between Townmead Road and the river.

Other uses may be permitted if they are complementary to the employment uses, for example, by providing services to employees or uses related to the needs of residents and users of the park and riverside. Adjacent to the park and the existing housing on Townmead Road the development should generally be low-rise (up to 4 storeys). The design of all buildings must not adversely affect the character of the existing residential area and must make an appropriate contribution to enhancing the character of the river. Any high building (see policy EN9) must be clearly justified on townscape grounds.

The extent of land contamination and the appropriate methods and cost of remediation may be material considerations which the Council will need to take into account in applying this site policy, and other policies or standards of the Plan, to a planning application for the site.

This riverside site within an employment zone is a major opportunity to provide for local and borough needs, to achieve a high-quality environment and open up access from the established residential area to the river.

(i) Riverside park

The proposal for a riverside park is a unique opportunity to overcome the great shortage of public open space in Sands End, as well as more generally in Fulham, and to open up the riverside to the general public. The minimum 1.8 hectares on this site together with the public open space in the Sands Wharf scheme will enable at least a 2 hectare (5 acre) open space to be created, which reflects a minimum size to provide a range of facilities based on the standards of the London Planning Advisory Committee and the Council's own experience. It is important that the park should have a riverside frontage both for townscape reasons and also to allow its users to have access to the riverside environment. It should extend through to Townmead Road to provide a physical and attractive link with the existing residential area and a view of the river. The park will provide both for quiet enjoyment and various physical recreation activities and should be designed to provide for a variety of habitats for plants and animals, especially those associated with the Thames and the riverside.

(ii) Riverside walk

The riverside walk is a normal requirement on riverside development sites in order to allow access to the riverside and make provision for walking in an attractive location.

Chapter 10 377 London Borough of Hammersmith and Fulham: UDP Alterations

This section of the riverwalk is also part of the Countryside Commission's long- distance Thames Path National Trail.

(iii) Local distributor road

The development of the site will enable the Sands End Local Distributor Road to be completed, as it already exists to the south of the site. The road is intended to serve the riverside developments and provide the opportunity to exclude through traffic from the parallel section of Townmead Road. (see policy TN11.2).

(iv) Public conveniences

These are necessary for the convenience of users of the riverside walk and park.

(v) Mix of employment and residential

The land that is not required for the park, riverside walk, local distributor road and toilets is likely to amount to around 4.4 hectares (c.11 acres). This should be developed for a mix of employment and residential. It is not appropriate to specify too precisely what this mix should be, in part because this could constrain the form of development too much. A number of factors may affect how the land-uses are disposed on the site and precisely how much of the residual area should be allocated to the land-uses. These could include the need to ensure compatability between the land-uses on the site and with adjacent housing and the precise layout of the park and route of the distributor road.

In addition, it is necessary to ensure that the quantity of development is appropriate to the location having regard to the level of public transport accessibility, the capacity of the highway network, and taking into account the implications of other possible developments. The reason for this is to reduce reliance on the private car and to restrain traffic growth, in furtherance of the objective of sustainable development, and in accordance with the policies of the Government and this Plan. It will be of particular importance to consider the volume and nature of journeys to work for the employment and from the residential proposed on the site. In view of the size of the site and its present low accessibility a study of these factors will be required in order to assess the acceptability of detailed proposals. This should take into account the implications of any improvement to public transport accessibility that would take place; for instance, from the construction of a new station on the West London Line in the vicinity of the site. The findings of the study will be used to establish the quantum of development on the site, in preference to the use of maximum plot ratios based simply upon the application of the Council's Public Transport Accessibility Level methodology referred to in standard S1.

In view of these factors the policy has a degree of flexibility on the issue of land-use mix but it is necessary and appropriate to give some guidance on the desirable mix:

(a) The site is in an employment zone. The proportion of the site allocated to employment use and the actual amount of employment should be substantial in order to make provision for new businesses, expansion of local firms and, thereby, to increase job opportunities. It is also appropriate that there should be employment on the site, because this provides opportunities for local jobs for existing and future residents within walking distance. The Council considers that employment uses should occupy about half the residual area otherwise the employment potential of the site may be constrained. However, the maximum quantity of floorspace will be subject to the accessibility and capacity study mentioned above. It is appropriate to

Chapter 10 378 London Borough of Hammersmith and Fulham: UDP Alterations

make provision for small businesses on this site. This is because of the local demand for small units and the size of the site, which will allow space to be allocated for this purpose. Such provision could include artists' studios.

(b) Although the site is in an employment zone, housing is appropriate (provided it meets a range of local needs, and is not designed to be an exclusive enclave) because:

(i) it would provide a more friendly and secure environment for the park and riverwalk and with overlooking and activity outside working hours;

(ii) it would allow potential for more variety in the riverside townscape;

(iii) it could extend the existing residential area towards the river. Affordable housing will be an important part of the housing provision on this site in order to help meet the very great need for low cost accommodation in the Borough. It is appropriate that such accommodation should be located here, especially as it will be accessible by foot to the park and to job opportunities. (vi) View corridors

The residential area west of Townmead Road is cut off from the river visually as well as physically. The character and sense of place in the local townscape will be enhanced if views to the river are opened up as part of the development.

(vii) Other uses

The complementary uses which would be acceptable include small shops, restaurants, banks and a public house. While meeting the needs of the employment area they must be located with regard to ease of accessibility from the existing residential area, and take account of the possibility of providing overlooking of the public open space and riverside walk.

(viii) Height of buildings

The river and riverside is identified by the Plan as an area of special character and, principally in recognition of this, the site is included within a conservation area. The appearance and height of development on the site could have a major impact on the character of this part of the river and the views along it for some distance from the north and south. In addition, high buildings in the vicinity could have a significant effect on the ambience of the low-rise environment in the residential areas to the west. This means that the height of the buildings, in particular, will need to be treated with great care, and high buildings (as defined in Policy EN9) will need to be specifically justified on townscape grounds in the context of the whole development and the surrounding area. This approach is consistent with the policies of the London Borough of Wandsworth on the opposite bank.

The park and existing residential area close to the site will be particularly sensitive to the height of buildings in the development and an abrupt increase in height would not be appropriate. Therefore, the adjacent parts of the development should be low-rise and no greater than four storeys. Building height and massing along the riverside walk will need to be treated carefully to create a pleasant environment for walkers and to avoid an overdominant presence. Therefore, it is not expected that high buildings could be justified immediately adjacent to the riverside walk.

(ix) Land contamination

Chapter 10 379 London Borough of Hammersmith and Fulham: UDP Alterations

British Gas BG Property has carried out a preliminary investigation of ground conditions on the site. This has shown various degrees of chemical contamination associated with past and present activities and concentrations of methane and other gases arising from organic material in the river alluvium and possibly from soil pollution. The method and costs of remediation work to deal with this contamination may have implications which will need to be taken into account as material considerations at the time when a planning application is considered. On 15 September 1999 the Council resolved to grant conditional outline planning permission for a mixed use scheme which is not wholly in accordance with the UDP on the combined site of Sites 32, 71 and 47.

Principal policy references in other chapters: EN2, EN2A, EN2B, EN9, EN23, EN23A, EN31, EN33, EN34, TN11, HO5, E1, CS7, S1.

SITE 34 FULHAM HIGH STREET, 86-90

1994 Policy Site 34 deleted

SITE 36 WHITE CITY CENTRE SITE Owner: British Rail, LRT and Private Area : 16.50 hectares

(see Town Centres chapter)

SITE 40 OLD OAK SIDINGS

1994 Policy Site404 deleted

SITE 47 IMPERIAL ROAD SITE Owner: Private British Gas Area: 3.5 4.72 hectares

The site should be redeveloped for B1/B8 uses generally in accordance with policy E1, having regard to the need to make provision for small businesses. It should incorporate an area of 1.0 hectare for environmentally acceptable open storage-based uses such as for use as a depot for and in connection with recycling and other purposes to be undertaken in a manner so as to minimise the environmental impact of the development.

In order to assess the level of employment development which would be acceptable on this site, a study must be undertaken within the context of the Plan's overall strategy of restraining the use of private cars for journeys to work. The study will take account of all the relevant circumstances of the proposed development, including the predicted level of journey-to-work trips generated by the employment element of the proposed development, and will have regard to the predicted impact of other potential developments in the area. The study will also investigate whether, and to what extent, the level of public transport accessibility at the site is likely to be improved, and the timing of any such improvement.

Chapter 10 380 London Borough of Hammersmith and Fulham: UDP Alterations

The study must be commissioned by the developer, on the basis of a brief which has been jointly agreed by the Council and the developer, and must be funded by the developer. The extent of land contamination and the appropriate methods and cost of remediation may be material considerations which the Council will need to take into account in applying this site policy, and other policies or standards of the Plan, to a planning application for the site.

This site is located in an employment zone and its locational characteristics make it very suitable for an employment use in the B1 (business) and B8 (storage or distribution) use classes. In view of its size it will be necessary to ensure that the quantity of employment provided is appropriate having regard to the level of public transport accessibility and the capacity of the highway network taking into account other possible developments in the area. Therefore, a study of these factors will be required and its findings will be used to establish the quantum of development on the site, in preference to the use of maximum plot ratios based simply upon the application of the Council's Public Transport Accessibility Level methodology, as referred to in standard S1.

The site is appropriate for the inclusion of open storage-based uses because it is not immediately adjacent to residential property. The area allocated could be occupied by a Council depot or private operations, or a mix of both. These open uses will be less employment intensive than other employment uses on the site which will help avoid an unacceptable level of traffic generation due to journeys to and from work.

In order to achieve the minimum Government target of recycling 25% of domestic waste by the end of the decade (see policy EN18) and the objectives of the Borough Recycling Plan, the Council considers that a site should be identified for use as a depot for recycling purposes. Site 47 is an appropriate location as it has satisfactory road access, and is close to the Waste Authority's refuse transfer station in Wandsworth and to the existing Council depot in Bagleys Lane.

There is a need to provide an adequate permanent site for environmentally acceptable storage-based uses. They provide jobs appropriate to the skills of many people, and they provide services important to the local economy. The existing facility on this site is the only one remaining in Fulham that provides for a range of users. Permanent provision should make it more economic for owners and operators to build to high enough standards to minimise the impacts from these uses. The Council will use its planning and environmental health powers to ensure that environmentally acceptable firms are located on the site and that there are no undue adverse effects on the amenity of the surrounding area.

It is appropriate to make provision for small businesses because of the local demand for small units and the size of the site which will allow space to be allocated for this purpose.

Chapter 10 381 London Borough of Hammersmith and Fulham: UDP Alterations

gases arising from organic material in the river alluvium and possibly from soil pollution. The method and costs of remediation work to deal with this contamination may have implications which will need to be taken into account as material considerations at the time when a planning application is considered.

On 15 September 1999 the Council resolved to grant conditional outline planning permission for a mixed use scheme which is not wholly in accordance with the UDP on the combined site of Sites 32, 71 and 47.

Principal policy references in other chapters: E1, EN18, S1.

SITE 54 ST STEPHENS RC PRIMARY SCHOOL,GAYFORD ROAD, 29-35, 45- 49

1994 Policy Site 54 deleted

SITE 55 LIME GROVE, 10-12 Owner: Council Area : 0.056 hectares

School extension: St. Stephens C.E

The site is within the Lime Grove conservation area. The extension is required to provide an adequate school site.

Principal policy references in other chapters: CS8, EN2, EN2A, EN2B

SITE 63A COOMER PLACE, (SOUTHSIDE) Owner: Council/Private Area : 0.34 hectares

B1 or residential, with appropriate town centre use of listed building; access/offices for A1 Garage.

SITE 63B COOMER PLACE, (NORTHSIDE) Owner: Council/Private Area: 0.25 hectares

Market stores, Engineer's sub-depot, car park and realigned Coomer Road and Mews.

(see Town Centres chapter)

SITE 65 DU CANE ROAD Owner: Home Office Area : 0.28 hectares

Institutional use (car parking) This is a proposal by the Home Office who own the site.

Chapter 10 382 London Borough of Hammersmith and Fulham: UDP Alterations

Principal policy references in other chapters: TN14, EN27

SITE 66 FORMER NORTHCROFT SCHOOL, SHEPHERDS BUSH ROAD

1994 Policy Site 66 deleted

SITE 71 NACOVIA WHARF (GREENHAM CONCRETE)

1994 Policy Site 71 deleted

SITE 72 WEST LONDON HOSPITAL, HAMMERSMITH ROAD

1994 Policy Site 72 deleted

SITE 75 NIGEL PLAYFAIR AVENUE, CAR PARK AND CINEMA Owner: Council/Private Area : 0. 46hectares

(see Town Centres chapter)

SITE 76 RIVERSIDE STUDIOS

1994 Policy Site 76 deleted

SITE 78 MARKS AND SPENCER WAREHOUSE, WOOD LANE

SITE1994 79 Policy ODEON Site 78 1 deletedCINEMA, SHEPHERDS BUSH GREEN Owner: Private Area : 0.30 hectares

(see Town Centres chapter)

SITE 82 BBC WHITE CITY

1994 Policy Site 824 deleted

SITE 83 KENNEDY INSTITUTE, BUTE GARDENS (INCLUDING 11 - 17 WOLVERTON GARDENS)

Chapter 10 383 London Borough of Hammersmith and Fulham: UDP Alterations

1994 Policy Site 83 deleted

SITE 84 OLD OAK COMMON SIDINGS AND ADJACENT LAND ON OLD OAK COMMON LANE, OAKLANDS HOUSE, DEPOT ON OLD OAK LANE AND NATURE CONSERVATION AREA B12.

1994 Policy Site 84 deleted

SITE A. RIVERSIDE INDUSTRY BLOCK (ALBERT, SWEDISH AND COMLEYS [RMC FULHAM] AND FULHAM WHARVES IN TOWNMEAD ROAD AND ADJOINING LEB LAND) Owner:: Private/LEB Area: 2.73 hectares

B Class or similar use suitable for Townmead EZ, with Swedish and Comleys wharves safeguarded against development that could preclude their future use for the transhipment of freight, including waste and aggregates, and for freight related activities, in accordance with Strategic Guidance for the River Thames RPG3b/9b.

In the past the Council has considered riverside sites in employment zones suitable for a mix of employment and residential uses, and on some sites it was considered more appropriate to permit greater levels of residential than riverside employment zone policy would normally allow (for example Site 32). However the Council considers that further losses of riverside sites to non-river related uses should be halted. If allowed to continue it would be likely to affect the satisfactory development of economic activity for which accommodation is increasingly becoming in short supply. This site contains two operational wharves.

Advice in Strategic Planning Guidance for the River Thames (RPG3b/9b) (February 1997) seeks to protect wharves for the loading and unloading of water-borne freight, including waste and aggregates, and freight related activities. In parallel with the guidance, the Secretary of State has identified Swedish and Comleys (RMC Fulham) wharves by two sets of directions served to the Council. The first served under section 12(7A) of the Town & Country Planning Act 1990 requires the local authority to have regard to maintaining the use of the sites as wharves The second is served under articles 10 and 14 of the Town and Country Planning (General Development Procedure) Order 1995 and requires that, before granting planning permission following an application on one of these sites, the local authority are required to consult the Secretary of Stae for the Environment, Transport and the Regions for a decision as to whetehr the application should be called-in for determination. These wharves are currently used by businesses which use the river, and it is the purpose of this policy to protect such uses and to retain the use of the wharves for the transhipment of freight and freight related activities, and safeguard against development that could preclude their future use for these purposes. Residential would not be appropriate to continued wharf use.

The site is in a variety of ownerships, and the part that is in non-wharf use is not subject to the above-mentioned directions. It is not the purpose of this site policy to ensure that this land is developed as a whole or safeguarded directly in association

Chapter 10 384 London Borough of Hammersmith and Fulham: UDP Alterations

with the wharves. However any development proposals for the non-wharf land will need to be in accordance with policy E1 and compatible with the continuation of wharf activities on Swedish and Comley’s wharves. A range of Class B uses will be suitable on land adjoining the wharves and will be expected to provide a buffer to any residential uses which may be in the vicinity. Any development involving the wharves or adjoining land in Site A will need to respect the riverside context, be of a high standard of urban design and maintain or enhance the quality of the built environment. The site is within the Sands End Road conservation area.

Principal policy references in other chapters: E1, EN31, EN32, TN31, EN2, EN2A, EN2B, EN6

SITE B. CARNWATH ROAD WHARVES (HURLINGHAM AND WHIFFEN) Owner: Private Area: 0.81 hectares

B Class or similar use suitable for Carnwath Road EZ, with Hurlingham wharf safeguarded against development that could preclude the future use for the transhipment of freight, including waste and aggregates, and for freight related activities, in accordance with Strategic Planning Guidance for the River Thames RPG3b/9b

The site is located in an employment zone. In the past the Council has considered riverside sites in employment zones suitable for a mix of employment and residential uses, and on some sites it has been considered more appropriate to permit greater levels of residential than riverside employment zone policy would normally allow (for example Site 32). However the Council considers that further losses of riverside sites to non-river related uses including residential should be halted. If allowed to continue it would be likely to affect the satisfactory development of economic activity for which accommodation is increasingly becoming in short supply. This site contains a wharf that ceased operation in the 1990s.

Advice in Strategic Planning Guidance for the River Thames (RPG3b/9b) (February 1997) seeks to protect wharves for the loading and unloading of water-borne freight, including waste and aggregates, and freight related activities. In parallel with the guidance, the Secretary of State has identified Hurlingham Wharf by two sets of directions served to the Council. The first, served under section 12(7A) of the Town & Country Planning Act 1990)requires the local authority to have regard to maintaining the use of the site as a wharf when formulating its Unitary Development Plan. The second is served under articles 10 and 14 of the Town and Country Planning (General Development Procedure) Order 1995 and requires that, before granting planning permission following an application on one of these sites, the local authority are required to consult the Secretary of State for the Environment, Transport and the Regions for a decision as to whether the application should be called-in for determination This wharf is currently vacant but has the potential for a new use for the transhipment of freight and freight related activities, and it is the purpose of the policy to safeguard against development that could preclude its future use for these purposes.. Residential would not be appropriate to continued wharf use.

Whiffen wharf is not identified in the above mentioned directions. It is not the purpose of this site policy to ensure that this land is developed as a whole or safeguarded directly in association with Hurlingham wharf. However any proposals

Chapter 10 385 London Borough of Hammersmith and Fulham: UDP Alterations

for this land which are not related to river freight use will need to be compatible with future water-borne freight including waste and aggregates and freight related activities on Hurlingham wharf. A range of Class B uses that help consolidate the industrial nature of this part of the zone will be suitable on land adjoining the wharf and will be expected to provide a buffer to any residential uses which may be in the vicinity, Any development involving Hurlingham wharf or adjoining land in Site B will need to respect the riverside context, be of a high standard of urban design and maintain or enhance the quality of the built environment. The site is within the Sands End conservation area.

Principal policy references in other chapters: E1, EN31, TN31, EN2, EN2A, EN2B

SITE H. A40/SAVOY BINGO CLUB VACANT LAND Owner: Highways Agency Area: 1.38 hectares

Residential and community services subject to environmental acceptability of these uses.

The site comprises vacant land, namely the former Savoy Bingo Club and land which was formerly in residential use, which was acquired by the Highways Agency for a road scheme. It is situated within the Wormholt conservation area. The road scheme was abandoned and it is important to find an appropriate use for the site. Given the previous use of the site, the Council would normally expect a development for affordable housing on the former residential land in general accordance with policy HO5, and an appropriate ACE facility or other community service use that could include local shopping on the Savoy Bingo Club site that would add to and complement the shops in the nearby East Acton key local shopping centre.

However, given the proximity of the A40, environmental and traffic/access constraints of the site will need to be given particular consideration. Any proposal will need to be supported by sufficient information to permit a full assessment of the suitability of the site for residential and community service uses in accordance with PPG24 and provide rear road access. A landscaped buffer strip between any new development on the site and the A40 should be considered.

In addition the applicant will need to demonstrate that the community service use will be compatible with, and not have a detrimental impact on, the East Acton key local shopping centre and neighbouring residential area.

Principal policy references in other chapters: HO5, CS2, EN2, EN2A, EN2B, EN20B, E5

SITE I. QUEEN CHARLOTTES HOSPITAL Owner: Hammersmith Hospital Trust Area: 2.56 hectares

Housing and/or community services.

Redevelopment of the site to provide a mix of housing and a frail bed elderly unit has been approved subject to the completion of a s.106 agreement. The principle of housing and community service uses has therefore already been agreed by the

Chapter 10 386 London Borough of Hammersmith and Fulham: UDP Alterations

Council. The site is within the Ravenscourt and Starch Green Conservation Area where there are statutory controls over demolition. Furthermore, the site includes a Grade II Listed Building, Oakbrook Lodge, which the Council would seek to retain and refurbish upon redevelopment. The scale and design of any redevelopment should preserve and enhance the character and appearance of the listed building and conservation area.

Principal policy references in other chapters: CS4, HO5, EN2, EN2A, EN2B, EN3 EN4

Site J 392-398 Uxbridge Road (Uxbridge Road rough)

Ownership: Private Area:

Residential and nature conservation

This site was formerly identified in the1994 UDP as a nature conservation area of local importance. The nature conservation value has deteriorated since its original identification and the establishment of clearance programmes by the owner. The opportunity therefore exists to re-establish nature conservation interest of equal or greater value to that which existed before, whilst at the same time providing for site development.as part of the redevelopment of the site, and the council will expect submission of a landscaping scheme to show how elements of nature conservation will be incorporated. The site is considered appropriate for residential development, and in accordance with affordable housing policies the council would expect to see the residential provide the maximum amount of affordable housing. The detailed design of any scheme will need to respect policy EN29 Nature Conservation on Development Sites.

Chapter 10 387 London Borough of Hammersmith and Fulham: UDP Alterations

CHAPTER 11: STANDARDS

INTRODUCTION 392

DEPARTURES FROM THESE APPLICATION OF STANDARDS 392

STANDARD S1 - PLOT RATIO 393 S1.1 PLOT RATIO 393

STANDARD S2 - DENSITY 396 S2.1 RESIDENTIAL - PERMISSIBLE RANGE 396 S2.2 FAMILY AND NON-FAMILY DWELLINGS 396 S2.3 PLOT RATIO/DENSITY ON MIXED USE SITES 396

STANDARD S3 - DAYLIGHT AND SUNLIGHT 397 S3.1 PROTECTION AND PROVISION OF DAYLIGHT AND SUNLIGHT 397

STANDARD S4 - ACCESS BY PEOPLE WITH DISABILITIES 398 S4.1 RAMPS, STAIRS, STEPS AND HANDRAILS 398 S4.2 CAR PARKING 398 S4.3 PAVEMENTS, BOLLARDS, POSTS AND GRATINGS 398

STANDARD S5 - REFUSE STORAGE AND COLLECTION 399 S5.1 PROVISION OF FACILITIES 399 S5.2 DISTANCE FROM COLLECTION VEHICLE 399 S5.3 ENCLOSURE OF STORAGE CONTAINERS 399 S5.4 PROVISION IN CONVERSIONS 399 S5.5 USE OF PUBLIC HIGHWAYS 399 S5.6 MULTI-STOREY BUILDINGS 399

STANDARD 5A - RESIDENTIAL AMENITY SPACE IN NEW DEVELOPMENTS 400 S5A.1 AMENITY SPACE FOR FAMILY DWELLINGS 400 S5A.2 AMENITY SPACE FOR NON-FAMILY DWELLINGS 400 S5A.3 AMENITY SPACE FOR FAMILY DWELLINGS NOT AT GROUND LEVEL 400 S5A.4 AMENITY SPACE FOR NON-FAMILY DWELLINGS NOT AT GROUND LEVEL 400

STANDARD S6 - AMENITY SPACE IN residential properties 401 S6.1 USE OF GROUND LEVEL GARDENS/AMENITY SPACE 401 S6.2 SIZE OF REAR GARDENS FOR FAMILY DWELLINGS 401 S6.3 REAR EXTENSIONS WHICH PROJECT BEYOND THE REAR BUILDING LINE OF THE OF THE PROPERTY AS ORIGINALLY BUILT 401

STANDARD NO. 7 - CHILDREN'S PLAYSPACE 402 S7.1 DEVELOPMENTS ON SITES OVER 0.2 HECTARES 402 S7.1A CHILDREN'S PLAYSPACE 402

Chapter 11 388 London Borough of Hammersmith and Fulham: UDP Alterations

STANDARD S7A INTERNAL SPACE PROVISION IN NEW DWELLINGS 402

STANDARD S8 - REQUIREMENTS FOR CONVERSIONS 403 S8.1 MINIMUM SIZE 403 S8.1A INTERNAL SPACE PROVISION IN RESIDENTIAL CONVERSIONS 403 S8.1B MINIMUM SIZES FOR FLATS 404 S8.2 ON-STREET CAR PARKING 406

STANDARD S9 - UPWARD EXTENSIONS OF BUILDINGS 407 S9.1 DESIGN PRINCIPLES 408 S9.2 DAYLIGHT AND SUNLIGHT TO ADJOINING PROPERTIES 408

STANDARD S10 - ROOF EXTENSIONS OF BUILDINGS IN PAIRS OR TERRACES 408 S10.1 DESIGN GUIDELINES 408

STANDARD S11 - ROOF STRUCTURES 409 S11.1 WATER TANKS, ETC. 409

STANDARD S12 - REAR EXTENSIONS TO RESIDENTIAL TERRACED PROPERTIES 409 S12.1 PROXIMITY TO REAR BOUNDARY 409 S12.2 DAYLIGHT TO ROOMS IN ADJOINING PROPERTY 410 S12.3 OUTLOOK FROM WINDOWS IN ADJOINING PROPERTY 410 S12.4 BOUNDARY WITH ADJOINING PROPERTY 410

STANDARD S13 - PROTECTION OF EXISTING RESIDENTIAL AMENITIES 411 S13.1 LOSS OF OUTLOOK 411 S13.2 LOSS OF PRIVACY 411 S13.2a NOISE AND DISTURBANCE FROM ROOF TERRACES AND BALCONIES 411 S13.3 ASPECT 411

STANDARD S14 - ADVERTISEMENT CONTROL 412 S14.1 VISUAL AMENITY 412

STANDARD S15 - ADVERTISEMENT RELATING TO PREMISES 412 S15.1 SIZE AND DESIGN, ETC. 412 S15.2 HEIGHT 412 S15.3 NUMBER OF SIGNS 412 S15.4 PROJECTING SIGNS 413 S15.5 ILLUMINATED SIGNS 413 S15.6 CONTROL OF ADVERTISEMENT REGULATIONS 413

STANDARD S16 - POSTER HOARDINGS 413 S16.1 GENERAL 413 S16.2 FACE OF A BUILDING 413 S16.3 FEATURES 413 S16.4 WALLS FLANKING FOOTPATHS 413 S16.5 FREE-STANDING HOARDINGS 413

Chapter 11 389 London Borough of Hammersmith and Fulham: UDP Alterations

STANDARD S17 - PARKING AND SERVICING 414 S17.1 REQUIREMENTS FOR PARKING AND SERVICING 414

STANDARD S18 - PROVISION OF CAR PARKING 414 S18.1 CAR PARKING STANDARDS 414 S18.2 ADHERENCE TO THE STANDARDS 414 S18.3 METHOD OF PROVISION (for business, industrial, storage and distribution developments) 416 S18.4 METHOD OF PROVISION (for retail developments): 416 S18.5 INFILL HOUSING 417

STANDARD S19 - PARKING LAYOUT 417 S19.1 DESIGN AND LOCATION 417 S19.2 DIMENSIONS OF CAR PARKING SPACES 417 S19.3 CAR PARKING SPACES FOR PEOPLE WITH DISABILITIES 417

STANDARD S20 - CYCLE PARKING 417 S20.1 CYCLE PARKING PROVISION 417

STANDARD S21 - PROVISION FOR SERVICING OF NON-RESIDENTIAL DEVELOPMENTS 418 S21.1 OFF-STREET SERVICING 418 S21.2 LOADING AND UNLOADING 418 S21.3 DESIGN OF SERVICING ARRANGEMENTS 418

STANDARD S22 - VEHICULAR ACCESS 418 S22.1 ACCESS TO PRIMARY ROADS STRATEGIC ROUTES 418 S22.2 ACCESS TO SECONDARY ROADS AND LOCAL DISTRIBUTOR ROADS LONDON DISTRIBUTOR, BOROUGH DISTRIBUTOR AND LOCAL ACCESS ROADS (where the local access road has an essential through-traffic function in the short to medium term) 419 S22.3 SIGHT LINES 419

STANDARD S23 - PEDESTRIAN ACCESS 419 S23.1 SEGREGATION 419 S23.2 AMENITY SPACE 419 S23.3 RESIDENTIAL ACCOMMODATION ABOVE SHOPS, ETC. 419

STANDARD S24 - FOOD AND DRINK ESTABLISHMENTS 420 S24.1 HOURS OF OPERATION 420 S24.12 SOUND PROOFING 420 S24.23 EXTRACTION AND VENTILATION SYSTEMS 420 S24.4 REFUSE STORAGE 420

APPENDIX 11.1: ASSESSMENT OF ON-STREET OVERNIGHT PARKING AVAILABILITY/STRESS 422

TABLE 11.1: CAR PARKING STANDARDS 424

Chapter 11 390 London Borough of Hammersmith and Fulham: UDP Alterations

TABLE 11.2: CYCLE PARKING STANDARDS 427

Chapter 11 391 London Borough of Hammersmith and Fulham: UDP Alterations

CHAPTER 11. STANDARDS

INTRODUCTION

11.1 The policies set out in this chapter are detailed standards against which planning applications will be assessed once the principle of development has been established through the land-use policies contained within Chapters 4 to 10 of the Plan. The Council will have regard to these standards in order to control developments where planning permission is required. However compliance with these standards does not confer any rights in respect of planning permission for development.

11.2 In its application of these standards the Council will aim to ensure that a development is not detrimental to the surrounding area and that the amenity of, and the environment within, the Borough are protected.

DEPARTURES FROM THESE APPLICATION OF STANDARDS

11.3 Each planning application must be considered on its own merits. The standards within this chapter are designed as a guide to the Planning Authority in making a determination. In certain circumstances it may be necessary or appropriate to tighten or relax the standards. In most cases an on-site judgement will be required, but the Council will only permit a departure from these standards where it is clearly justified by the circumstances of a particular case. For this reason no such departure can be regarded as forming a precedent affecting the consideration of other proposed developments. Furthermore, compliance with these standards does not necessarily mean that planning permission will automatically be granted in all cases.

11.4 Some of the standards derive from the Town and Country Planning Acts and others follow nationally derived formulae which are fully described elsewhere and to which reference is made. Standards formulated under legislation other than the Town and Country Planning Acts (e.g. Building Regulations or Environmental Housing and Health Standards) may also affect development proposals and will be considered when planning applications are made. More detailed guidance is given in relation to specific types of development in the form of design and development guidelines.

Chapter 11 392 London Borough of Hammersmith and Fulham: UDP Alterations

STANDARD S1 - PLOT RATIO

S1.1 PLOT RATIO

1. The maximum plot ratio normally permitted for a development of a Class B land-use is dependent on the accessibility of the development site to public transport, in accordance with the Council's "Public Transport Accessibility Level" (PTAL) indices as follows:

Public Transport Accessibility Level Maximum (PTAL) Index Permissible Plot- Ratio 1 0.50:1 2 0.75:1 3 1.00:1 4 1.33:1 5 1.67:1 6 2.00:1 6* >2.00:1 Sustainable Transport Development Zones: Locations with the highest PTAL which are also within the defined town centre boundaries shown on the Proposals Map]

This standard applies both to new buildings and to existing buildings where their extension is proposed. (The current PTAL indices for the Borough are indicated in Supplementary Planning Guidance. The method used to derive the PTALs is explained in Appendix 5.3 of Chapter 5 Transportation and Accessibility).

2. A plot ratio in excess of the maximum permissible will only be permitted in exceptional circumstances: in particular, in the special circumstances

- where a developer is prepared to enter into a Planning Obligation under Section 106 of the Town and Country Planning Act 1990 to fund an improvement (or improvements) to local public transport provision, such as will have the effect of raising the PTAL index of the development site to a higher level.

- in Sustainable Transport Development Zones (STDZ), which are town centre locations with the highest PTAL (Level 6), where the Council will consider allowing developments in excess of 2:1 plot-ratio where it can be demonstrated that a specific scheme will enhance the accessibility, vitality and viability of the town centre and provided that, in particular, these demonstrate a high quality design and respect for local buildings and urban fabric. The Council will require a Transport Impact Assessment to support the proposals (see Policy TN13 and Appendix 5._ of Chapter 5).

Chapter 11 393 London Borough of Hammersmith and Fulham: UDP Alterations

3. The permitted plot ratio may be varied if necessary to achieve important urban design objectives.

Major B class generators of travel and transport will be subject to the sequential approach and in particular to the council’s policy TN2. The plot ratio standard will not be applied either before or instead of the sequential approach, instead it will be used to determine the quantity of major B class development on any particular site following the application of the sequential approach to site selection.

11.5 The Borough's road network is heavily congested and there is limited scope for absorbing additional traffic generated by new developments in such a way that will not detract from the quality of the environment and the level of overall accessibility currently enjoyed by local residents and existing businesses. In trying to address this problem and at the same time cater for the many people who rely on using public transport, the Council has developed complementary standards for car parking (see Standard S18) and plot ratio which are designed to help ensure that there is coordination between land-use and transportation planning objectives, by ensuring that high-intensity employment-generating activities are located in areas of the Borough where a high proportion of the workforce will be able to travel to/from work by public transport as a result of good accessibility to public transport services. Any potential generation of additional car commuting journeys to/from work will be minimised by the strict enforcement of both the car parking standards and on-street parking controls.

11.6 The Council's plot ratio standard will allow a higher maximum intensity of development of a Class B land-use (i.e. development which has the potential for generating large numbers of personal commuting journeys to/from work) in those areas with the highest public transport accessibility level, whilst only a lower maximum plot ratio will be acceptable in areas with low public transport accessibility levels. In this way high-intensity employment-generating developments which can generate a high level of journey-to-work person-trips for a given site area will be directed to areas of the Borough with the most developed public transport services, usually town centres; and, by making other locations, often predominantly residential areas with low public transport accessibility, less attractive to developers it will safeguard these parts of the Borough from the effects of increased traffic.

11.7 The Government's White Paper "This Common Inheritance" states that:

"the Government intends to issue planning guidance on the location of new development in relation to traffic generation (and) one aim would be to guide new development to locations which reduce the need for car journeys and the distances driven"

This view was supported by Sir George Young in September 1991 when he said:

"We need to increase the opportunities for getting to activities that generate a lot of trips without using cars. For example, offices, shops, higher education centres, and hospitals, should be located where they can be reached by public transport."

The planning guidance referred to in "This Common Inheritance" has now been published as Planning Policy Guidance Note 13 Transport (March 1994), which states, inter-alia, that:

Chapter 11 394 London Borough of Hammersmith and Fulham: UDP Alterations

"Local authorities should establish 'accessibility profiles' for public transport in order to determine those sites which could meet the policy goals set out in this guidance. ... The likely availability and use of public transport is a very important ingredient in determining locational policies designed to reduce the need for travel by car. ..."

The Council’s application of PTAL and plot-ratio standards is also highlighted in ‘A Guide to Better Practice - PPG13 (October 1995).’ Para. 3.11 states: “The London Borough of Hammersmith & Fulham has adopted an approach under which improved accessibility is rewarded by higher plot-ratios (the ratio of the volume of development on a site to the size of the site itself). The Borough has established 6 bands of accessibility...used to define parking standards and development plot- ratios; so the better the public transport accessibility the higher the plot-ratio; and the poorer the accessibility, the lower is the density of development allowed.”

11.7a Strategic Guidance for London Planning Authorities RPG3: GOL: May 1996 states in para. 6.48:

“Local assessments should be undertaken to take account of differences in accessibility within Borough boundaries. The adoption of a methodology to define public transport levels of accessibility will be valuable in demonstrating the parts of Boroughs where more sustainable development can take place and in indicating the scope for improvements to different modes of transport. The Public Transport Accessibility Index developed by the London Borough of Hammersmith and Fulham is one means by which local authorities can develop objective assessments of those areas well served by public transport in their areas.”

Para. 6.52 states:

“..Where public transport accessibility is good higher densities of employment generating activities should be allowed but without increasing the number of car parking spaces.”

This approach is was also supported by LPAC, whose Advice on Strategic Planning Guidance for London stated, inter-alia, that:

"The planning process in London should maximise access to new development by public transport..... It should involve a locational framework for development that takes into account actual and potential non-car accessibility.... Public transport accessibility levels should be used to assess the potential for development. In addition, ways to increase this potential should be identified for locations which already have higher public transport accessibility and those where it can be improved. .... Development proposals which generate a large number of person trips, because of the size, nature and intensity of their activities, should be located where there is high public transport accessibility, ...."

11.8 The word "normally" is included in the standard in recognition of the possibility of a plot ratio in excess of the normal maxima being allowed, in the following exceptional circumstances. Firstly, in areas with a PTAL index of 6, where there is a need to relate satisfactorily to the bulk and scale of existing or approved buildings adjacent to the site or where it can be demonstrated to the Council’s satisfaction that a specific scheme will enhance the accessibility, vitality and viability of a town centre. In the latter case, however, it will still be necessary to demonstrate that the proposed development relates satisfactorily to the surrounding area and meets the criteria set out in policy EN8. Secondly, in other areas, where, in a small infill scheme in a terrace, there is a need to ensure that the architectural scale of the

Chapter 11 395 London Borough of Hammersmith and Fulham: UDP Alterations

development is compatible with that of adjacent buildings; in which case the plot ratio must not exceed that of those adjacent buildings. The existence on a development site of a plot ratio in excess of the maximum permitted by this standard will not normally constitute, in itself, grounds for permitting a plot ratio in excess of the standard.

11.9 Any grant of planning permission will be conditional upon a developer demonstrating to the Council's satisfaction that such permission will not compromise the Council's key policy objectives for achieving road traffic restraint and for requiring an appropriate level of public transport accessibility to the proposed development.

STANDARD S2 - DENSITY

S2.1 RESIDENTIAL - PERMISSIBLE RANGE

The density of new residential development shall normally be not less than 173 habitable rooms per hectare (70 habitable rooms per acre) nor more than 247 habitable rooms per hectare (100 habitable rooms per acre).

S2.2 FAMILY AND NON-FAMILY DWELLINGS

Within this range the density appropriate for each scheme will depend in particular on the types of accommodation to be provided. Where only family dwellings are proposed the density should not normally exceed 210 hrh (85 hra) and in the case of non-family housing the maximum figure should not exceed 247 hrh (100 hra). Where a mix of family and non-family dwellings is proposed the maximum density shall be between 210 hrh and 247 hrh proportionate to the number of family and non-family dwellings (see glossary for definitions).

11.10 Density standards are considered very important elements in maintaining the residential amenity of the development, the character of residential areas and the quality of life of residents (see also paras. 6.121 and 6.122 of the Housing Chapter). The standards have been developed to suit the circumstances of the borough and are complemented by Supplementary Planning Guidance on internal space provision in dwellings and provision of residential amenity space.

S2.3 PLOT RATIO/DENSITY ON MIXED USE SITES

In a mixed-use development where residential and Class B land-uses are allocated separate parts of a site (i.e., with no physical overlapping of floors in different uses) then the density and plot ratio for each part of the site shall be assessed separately; and any areas of the site serving a common purpose (i.e. roads and amenity space) shall be allocated proportionately between the uses.

Where the site cannot be divided in this way then the density/plot ratio of the development shall be assessed as follows: i) Apply the relevant maximum plot ratio (see standard S. 1) to the proposed non-residential gross floor area. This will produce a notional non- residential site area;

Chapter 11 396 London Borough of Hammersmith and Fulham: UDP Alterations

ii) Deduct the area produced in (i) from the net area of the whole site and this will produce the notional residential net site area; iii) Use the area produced in (ii) for calculating the notional residential gross site area; and iv) Use the residential gross site area from (iii) in calculating the scheme's residential density.

11.11 The standard enables an appropriate application of density and plot ratio standards to a mixed-use scheme. For example, on a 1 hectare town centre site (PTAL Index 6), a single-building scheme with 8,000 sq.m. gross of non-residential space and 150 habitable rooms would be assessed as follows: i) 8,000 sq.m gross floorspace, at max. plot ratio of 2:1, would need a notional non-residential site area of 4,000sq.m. ii) From the total site area (10,000 sq.m), deduct this 4,000 sq.m non-residential allowance, giving a 6,000 sq.m notional net residential site area. iii) Add appropriate allowance for streets adjoining site (in this case the maximum of 10% is used) to give the gross residential site area for density purposes; i.e. max. 6,600 sq.m, or 0.66 hectare.

STANDARD S3 - DAYLIGHT AND SUNLIGHT

S3.1 PROTECTION AND PROVISION OF DAYLIGHT AND SUNLIGHT

In considering the provision of adequate daylight and sunlight to new development, including extensions; the protection of adequate daylight to potential development sites; the protection of adequate daylight and sunlight to existing buildings; and the protection of sunlight to open amenity areas the Council will have regard to the guidance set out in the Building Research Establishment's (BRE) Report 1991 'Site layout planning for daylight and sunlight - A guide to good practice' in the circumstances of each case. In some circumstances the Council has identified situations where an additional standard (S12.2) needs to be met. In these circumstances the Council will seek developments to accord with standard S12.2. If any part of the development infringes this standard it will be necessary to demonstrate that it accords with the provision of the BRE’s guidelines.

11.11a The British Research Establishment’s (BRE) guidance gives advice on site layout and planning to achieve good sunlight and daylighting both within existing and proposed buildings and in open spaces between them. Natural lighting is only one factor to be considered in site layout design, but the advice contained in the BRE document is intended as a guide to good practice.

11.12 This standard provides that all new development, including extensions and new accommodation provided in existing buildings should be arranged to ensure such penetration of daylight and sunlight, in and between building blocks, as is necessary to provide adequate natural lighting conditions in all living and working space, and also in gardens and amenity spaces.

Chapter 11 397 London Borough of Hammersmith and Fulham: UDP Alterations

11.13 New development must allow for the protection of adequate light to reach adjacent buildings, potential development sites and open amenity areas. In the case of an existing building which already fails to meet these provisions, the Building Research Establishment's guidance will be used by the Council to negotiate improvements when opportunities arise.

11.14 The Council will not normally approve proposals for the extension or alterations of an existing building where the amount of light available to the building or adjacent building is already below these standards and would be materially reduced by the development proposal.

STANDARD S4 - ACCESS BY PEOPLE WITH DISABILITIES

S4.1 RAMPS, STAIRS, STEPS AND HANDRAILS

Within the spaces between and around buildings where the Building Regulations do not operate the Council will apply the following standards:

(a) Ramps - All ramps should have a maximum gradient of 1:12, and a width of not less than 1200 mm. On long approach ramps each section of the ramp should not exceed 10 metres, where a platform measuring 1200 mm by 1500 mm has to be provided. The outside edge should have a 100 mm kerb. On ramps of over 4.5 metres handrails should also be provided on both sides of the ramp (see below)

(b) Handrails, Stairs and Steps - All handrails should extend 300 mm before and after the start of the stairway or ramp. The diameter of the handrail should not exceed 50 mm and the height from the step or ramp should not be higher than 900 mm and internal risers not larger than 170 mm. The profile of risers should be sharp with open-risers to be avoided. The goings of steps should have a minimum of 250 mm to tread upon and the actual nosing of the step should have a strip of material that indicates the edge of the step has been reached.

S4.2 CAR PARKING

Car parking spaces for people with disabilities should be provided at a minimum level of 4% of the total provided by the development. Car parking spaces should be reserved for people with disabilities as close to the principal entrance of the building as possible. A minimum bay width of 3.2m is required and such bays should be clearly marked "Reserved for people with disabilities". Where necessary the path to the principal entrance of the development should be obstruction free and lit at night.

S4.3 PAVEMENTS, BOLLARDS, POSTS AND GRATINGS

Pavements and pathways should be at least 1650 mm wide adjacent to the public highway and 1200 mm within housing developments, and bollards should be at least 900 mm high and a minimum of 900 mm apart. Manhole covers, gratings with bars only 15 mm apart should be flush with the surrounding road or pavement surface. Sign-posts should be clearly marked and painted in bright colours to aid people with low vision.

Chapter 11 398 London Borough of Hammersmith and Fulham: UDP Alterations

11.15 Section 76 of the Town and Country Planning Act 1990 places a duty on local planning authorities to draw applicants' attention to their statutory obligations under the Chronically Sick and Disabled Persons Act and to the British Standards Institution's Code of Practice, BS5810: 1979, Access for the Disabled to Buildings. Standards S4.1-S4.3 seek to ensure that the development of land and buildings is carried out in a way which provides a more accessible environment for people with disabilities. The Council will expect the standards to be taken into account by developers in all development schemes. The appropriate design of spaces pertaining to areas outside buildings relates to site layout and planning, and is particularly important for ensuring good access between and around buildings. Other groups, such as the elderly and people with toddlers or infants in pushchairs will also benefit from improved accessibility of the built environment.

11.16 Further information is available in the document Designing for the Disabled by Selwyn Goldsmith (RIBA 1976) and from the Council's Access Officer.

STANDARD S5 - REFUSE STORAGE AND COLLECTION

S5.1 PROVISION OF FACILITIES

Facilities must be provided within all new developments (including conversions and changes of use) for the storage of refuse

S5.2 DISTANCE FROM COLLECTION VEHICLE

Each refuse container should be sited at ground level at a distance of not more than 25 metres (in the case of dustbins or plastic sacks) and not more than 10 metres (in the case of paladins) from the collection vehicle POINT.

S5.3 ENCLOSURE OF STORAGE CONTAINERS

Refuse containers, whether dustbins, paladins or plastic sacks, or recycling boxes are unsightly and can cause nuisance. They should wherever possible be located within enclosures, unless only a single dustbin is involved. These enclosures should be constructed of materials in keeping with their surroundings and screened as much as possible by using boundary walls, fencing or planting, with a safe unobstructed level access to them. No doors should open over the highway.

S5.4 PROVISION IN CONVERSIONS

Provision should be made for the storage of refuse and recyclables in schemes for the conversion of single dwelling houses into two or more units.

S5.5 USE OF PUBLIC HIGHWAYS

Any provision for refuse storage should not result in the deposit of containers on the public highway at any time.

S5.6 MULTI-STOREY BUILDINGS

Chapter 11 399 London Borough of Hammersmith and Fulham: UDP Alterations

In multi-storey buildings where refuse shutes are being provided for the disposal of waste, provision should be made for the separation and collection of a range of recyclables

11.17 Inadequate storage of refuse can result in a public health hazard. The Environmental Protection Act 1990 acknowledges the severe problems associated with litter and waste. The above standards are necessary in order to maintain and improve visual amenity in the Borough whilst at the same time having environmental health implications.

11.17a Waste is a misuse of natural resources and wherever it is avoidable it should be prevented. The Council seeks to expand recycling in the Borough in order to achieve as a minimum the Government target (Draft Waste Strategy for England and Wales. 1999) to recycle 25% of domestic waste by 2005. The Council seeks to encourage new households (new developments, changes of use and conversions) to sort and segregate waste by requiring the provision of facilities for the storage and collection of recyclables. This is one way of contributing to the Council’s Recycling Plan and can improve the viability of recycling schemes.

STANDARD 5A - RESIDENTIAL AMENITY SPACE IN NEW DEVELOPMENTS

S5A.1 AMENITY SPACE FOR FAMILY DWELLINGS

Every new family dwelling with accommodation at ground floor level should have at least one area of private open amenity or garden space of an area not less than 36 square metres (387 square feet) with direct access to it from the dwelling.

S5A.2 AMENITY SPACE FOR NON-FAMILY DWELLINGS

Every new non-family dwelling with accommodation at ground level should have at least one area of private open amenity/garden space of an area not less than 14 square metres (150 square foot).

S5A.3 AMENITY SPACE FOR FAMILY DWELLINGS NOT AT GROUND LEVEL

11.17b Where it is not possible or practicable to locate a family dwelling with accommodation at ground floor level then the minimum area of open space (i.e. 36 square metres per dwelling) should be provided communally within the building's curtilage and within easy view of the dwelling.

S5A.4 AMENITY SPACE FOR NON-FAMILY DWELLINGS NOT AT GROUND LEVEL

In the case of non-family dwellings located above ground floor level a balcony of not less than 3 square metres (32 square foot) should be provided to each dwelling. The remaining open space required i.e. 11 square metres (118 square feet) should be provided communally elsewhere within the development's curtilage.

11.17c The Council considers that the need to provide private open space for the enjoyment of occupiers of all new residential properties is a prime requirement for

Chapter 11 400 London Borough of Hammersmith and Fulham: UDP Alterations

residential developments in a Borough with an existing high density of development and a deficiency of public open space. This is of even greater necessity in the case of family dwellings where every effort should be made to ensure that such dwellings have direct access to their own private open space at ground floor level.

STANDARD S6 - AMENITY SPACE IN RESIDENTIAL PROPERTIES

S6.1 USE OF GROUND LEVEL GARDENS/AMENITY SPACE

Where a property proposed for conversion contains a rear garden or amenity space then it should be used by a family-sized unit with direct access to it from that dwelling unit.

S6.2 SIZE OF REAR GARDENS FOR FAMILY DWELLINGS

Where a family dwelling has access to a rear garden or amenity space any extension shall not normally result in that space being reduced to less than 36 sq.m. (387 sq.ft.) or where the existing space is less than 36 sq.m. result in the space being reduced at all.

11.18 The size of the private open space cannot be altered in the case of the conversion of an existing property. However, the Council considers that preference should be given, where gardens are provided, to families; and accordingly, where family dwellings are proposed in a conversion scheme, they shall be located at a level which gives direct and normally exclusive access to the garden. Conversion schemes often require ground floor extensions to provide the necessary accommodation, but if such extensions result in a loss of garden space below acceptable levels, they will be considered unacceptable. If the property is of sufficient size to allow family dwellings at upper levels then these should be provided with open amenity space. Such space may be in the form of a roof terrace but its provision will have to ensure that the amenities of neighbouring properties are adequately protected. (see standard S13.2)

S6.3 REAR EXTENSIONS WHICH PROJECT BEYOND THE REAR BUILDING LINE OF THE OF THE PROPERTY AS ORIGINALLY BUILT

In determining applications for such extensions the Council will have regard to the existing established rear building lines of adjoining properties. However, planning permission will not normally be granted for any extension if: i. The proposed extension is more than 3.5 metres in length or, where the original property has already been extended, if the combined length of the existing and the proposed extensions would project more than 3.5 metres beyond the rear building line of the back addition as it was originally built; or ii. The proposed extension would extend to within 4 metres of the rear boundary of the application property; or iii. The proposed extension would cover more than 50% of the open area at the rear of the property as originally built or, where the original property has already been extended, if the cumulative area of the existing and proposed

Chapter 11 401 London Borough of Hammersmith and Fulham: UDP Alterations

extensions would cover more than 50% of the open area at the rear of the property as originally built.

11.18a The Borough already has a high density of development, with little space between buildings, particularly in the south of the Borough. In addition to being important as an amenity for residents, back gardens and the open spaces at the rear of buildings can also be an important element in defining the character and appearance of an area. In some cases erecting a rear extension to a single dwellinghouse, may not require planning permission because it is identified as permitted development (The Town and Country Planning (General Permitted Development) Order 1995). However, in cases where planning permission is required, the Council considers it necessary to limit the size of rear extensions to ensure that they do not result in an unacceptable loss of existing amenity space or adversely affect the existing sense of openness between buildings to a degree which could be considered unneighbourly or harmful to the existing established character of the area. Where the existing level of amenity space is already limited and/or the existing space between buildings is confined, it may not be appropriate to permit any rear extension.

STANDARD NO. 7 - CHILDREN'S PLAYSPACE

S7.1 DEVELOPMENTS ON SITES OVER 0.2 HECTARES

All new residential development which contains flats on sites which have a gross area exceeding 0.2 hectares (0.5 acres), and which include accommodation for at least 10 children, shall also include at least one appropriately equipped play area.

S7.1A CHILDREN'S PLAYSPACE

11.19 The provision of playspace for children is essential in all residential developments catering for families in flats. Developments should certainly not compound any deficiencies in playspace in a locality. Where it is not possible to locate private open space immediately adjacent to the dwelling within a new development, an equivalent area of open space should normally be provided close to each dwelling concerned (preferably on a communal basis). Supplementary Planning Guidance on children's playspace provision is available from the Council.

11.19a The Council has developed guidelines on the minimum sizes of play areas which it considers appropriate for different sizes of new developments. These are included in Supplementary Planning Guidance on children’s play space provision, which is available from the council.

STANDARD S7A INTERNAL SPACE PROVISION IN NEW DWELLINGS

All new dwellings should be built at or above the following minimum net floor areas.

Minimum floor areas in new dwellings Type of Dwelling No. of habitable rooms 6 5 4 3 2 1 3 storey house 98 94 - - - -

Chapter 11 402 London Borough of Hammersmith and Fulham: UDP Alterations

2 storey central terrace 92.5 85 74.5 - - 2 storey semi or end terrace 92.5 82 72 Maisonette 92.5 82 72 Flat 86.5 80.5 70 57 44.5 30 Single storey house 4 75.5 66 57 44.5 30 All areas are given in square metres and do not include the area necessary for an internal garage.

11.19b The 1999 Housing Needs Survey revealed a number of households as being overcrowded. Government Guidance, in particular PPG3, asks local authorities to take account of assessments of local housing need in determining the type and size of additional housing for which they should plan. The Council therefore considers that standards are required to ensure that in all new residential developments all rooms are of such size and shape as to meet local needs and to allow a satisfactory layout to provide enough space for the requirements of modern households. The measurements set out above are derived from the net floor areas necessary for public sector housing and are considered to be the minimum standard which should normally apply to all new dwellings.

STANDARD S8 - REQUIREMENTS FOR CONVERSIONS

S8.1 MINIMUM SIZE

No residential property occupied as a single dwelling with a net floor area as originally built of less than 110 120 square metres (1184 square feet) will normally be granted planning permission for conversion into two or more units.

11.20 PPG3, Housing, asks local authorities to take account of assessments of local housing need in determining the type and size of additional housing for which they should plan. There is increasing pressure to convert many smaller properties which, by reason of their size and character, are unsuitable for conversion and should be retained for single family occupation. This is particularly important given that the 1999 Housing Needs Survey revealed a number of households as being overcrowded and a need for family accommodation in the borough. For the definition of "originally built" as included in this standard see the General Development Order.

S8.1A INTERNAL SPACE PROVISION IN RESIDENTIAL CONVERSIONS

The minimum net floor area of individual rooms within all converted self-contained residential units should be in accordance with the table below.

Internal Space Provision in residential conversions

Family Unit Non-Family Unit Living Room 15 12.5 Dining/Living Room 16 14

Chapter 11 403 London Borough of Hammersmith and Fulham: UDP Alterations

Working Kitchen 7.5 5.5 Kitchen/Diner 9 7.5 Main bedroom 12 12 Other double bedrooms 10.2 - Single bedroom 6.5 6.5 Bathroom 3.7 3.7 All areas are given in square metres.

S8.1B MINIMUM SIZES FOR FLATS

Converted flats to provide for full self containment should have an internal area of at least 32.5 square metres (350 square feet) where a separate bedroom is provided. Where a self-contained bedsitting room is provided there should be at least 25 square metres (270 square feet) with a minimum living/sleeping area of 14 square metres (150 square feet). (Mezzanine floors/beds decks will not be included when calculating total floorspace. Separate kitchen areas should be provided).

11.20a Government Guidance in the form of PPG 3 Housing states that internal space provision is for the most part a matter for the marketing judgment of developers, in the light of their customers' requirements. However, the Council considers that in a borough such as Hammersmith and Fulham, where there is a strong demand for small units, and pressure on the existing housing stock to be sub- divided to meet this demand, there is a need for guidelines to provide a degree of control over conversions. The Council considers that a major consideration should be the ability of the new units to provide rooms adequate in size for their intended use and occupancy. Unlike applications for new residential developments which can be designed to accord with modern day space requirements, and so only an overall minimum floorspace is necessary, the conversion of old dwellings requires the adaptation of existing layouts and rooms originally designed for different purposes. Because this frequently results in wasted space, convoluted stairs and corridors and individual rooms being unsuitable for their intended purposes due to their shape, size and position it is the size of individual rooms rather than overall floorspace that becomes the important criterion. The shape of rooms should allow for a satisfactory layout and adequate range of furniture and equipment.

S8.1C RESIDENTIAL UNITS IN BASEMENTS OF RESIDENTIAL PROPERTIES

The creation of basement flats in residential properties through either the conversion of existing basements or the creation of new basements will not normally be granted planning permission;

(i) Where such development would necessitate the creation of a lightwell at the front of the building that would be out of character with the streetscene, especially where this would result in the loss of a significant part of the front garden;

(ii) Where such development would necessitate the creation of a lightwell at the rear or side of the building that would result in the loss of more than 50% of the open area at the rear or side of the property as originally built; or, where the original property has already been extended or altered, the

Chapter 11 404 London Borough of Hammersmith and Fulham: UDP Alterations

cumulative extensions and alterations would result in more than 50% of the open area being lost at the rear or side of the property as originally built;

(iii) Where, having regard to the guidance set out in the Building Research Establishment’s (BRE) report 1991 ‘site layout planning for daylight and sunlight – a guide to good practice’ (standard S3.1), the provision of daylight and sunlight to rooms is inadequate;

(iv) Where the net floor area of the flat and net floor area of individual rooms do not conform with the minimum requirements set out in standards S8.1A and S8.1B.

(v) Where the conversion of an existing basement would not be in accordance with on-street parking requirements set out in standard S8.2.

(vi) Where the creation of new basements would not be in accordance with off-street parking requirements set out in standard S18.1.

There are a number of properties in the Borough with existing basements, including semi-basements which are partially at ground level. The creation of basement flats through either the conversion of existing basements or the creation of new basements can provide an important source of additional residential dwellings in a densely built up borough like Hammersmith and Fulham, where there are relatively few sites available for new building. However, the Council has to ensure that the increase in dwelling stock as a result of creating basement flats through conversions of existing basements or the creation of new basements, does not have an adverse effect on the residential environment. The Council would therefore not wish to permit over-development or inappropriate development of existing properties to the detriment of the amenities of the surrounding area or properties.

Reason for (i) and (ii)

Lightwells may need to be created where existing basements are being converted or new basements are being created to provide basement flats. Although a lightwell may be necessary to achieve adequate daylight and sunlight provision the creation of a lightwell can have a detrimental effect on the character and amenity value of the streetscape with a resultant loss of front gardens and features that can damage the uniform appearance of terraces and groups of houses. Furthermore, the creation of lightwells to the rear or the side of properties can result in a significant loss of gardens, which are important as an amenity for residents and can also be important in defining the character and appearance of an area. For these reasons, as with proposals for extensions to the rear of properties, the Council considers it necessary to limit the size of rear basement extensions to ensure that they do not result in an unacceptable loss of amenity space. Where lightwells are a necessity, but the existing level of amenity space is already limited and lightwells would be harmful to the streetscape, it may not be appropriate to permit any use of new or existing basements as basement flats. Guidance on the design of lightwells will be provided by supplementary planning guidance.

Reason for (iii)

New accommodation should be designed to provide adequate daylight and sunlight penetration in accordance with standard S3.1. This is particularly important where the creation of basement flats are being proposed, especially if the accommodation

Chapter 11 405 London Borough of Hammersmith and Fulham: UDP Alterations

is entirely contained at basement level. The provision of lightwells is therefore likely to be critical and where lightwells cannot accord with the Council’s policy then the creation of a basement flat will not be acceptable.

Reason for (iv)

The internal space available in basement flats can often be limited, especially in conversions where existing rooms and layouts require adaptation. It is therefore important that converted and new basement flats provide rooms adequate in size for their intended use and occupancy in accordance with standards set out in S8.1a and S8.1b.

Reason for (v) and (vi)

Conversions of existing basements to create additional self contained residential units are likely to increase the demand for on-street car parking. In streets where on-street parking is already under severe stress, additional conversion of basements will further exacerbate the problem. The Council does not wish to worsen the situation in streets which are above the notional on-street overnight car parking capacity or in those streets where there is only a limited capacity for on-street overnight car parking, (i.e. Less than 10% free space) and will seek to restrict the number of additional self contained residential units that can be provided by conversions of existing basements. Where the resultant additional demand for car parking cannot be accommodated on-street, off-street car parking provision will be required in accordance with standard S18.1. In respect of creating new basements to provide additional self-contained residential units, off street parking should be provided in accordance with standard S18.1.

S8.2 ON-STREET CAR PARKING

1. The Council will normally refuse permission for a residential property to be converted in streets where the level of on- street overnight parking exceeds the notional on-street overnight parking capacity.

2. The Council will normally limit the extent to which a residential property can be converted to a level of one unit less than the number of floors in the property as it was originally built for residential occupation, and which would be in residential (C3) use following the conversion, in streets where: i) the level of on-street overnight parking leaves less than 10% free notional on-street overnight parking capacity, or ii) where the street is classified as a primary, secondary or local road strategic route, London distributor, Borough distributor or local access road where the local access road has an essential through-traffic function in the short to medium term (see policy TN8 TN9).

Where it is proposed to increase the number of conversions beyond the number permitted by this standard, the additional units created by such conversion will normally only be permitted if sufficient off-street parking spaces are provided to meet the full car parking demand generated by the additional units (see Table 11.1, Use Class Order : C3, Dwellinghouses).

Chapter 11 406 London Borough of Hammersmith and Fulham: UDP Alterations

Particularly in respect of residential above commercial premises a lower level of parking may be acceptable, subject to the availability of public transport and local services, together with the practicality of meeting the full parking standard. In these circumstances, the council will need to be satisfied that there would be no consequential increase in on-street parking demand in areas of over-night parking stress.

11.21 Increasing car ownership is intensifying the already severe pressures of on- street parking leading to frequent incidence of congestion and double-parking. While the Council has no powers for (or intention of) controlling car ownership, it does have responsibility to take account of the impact of increasing car ownership. Moreover research has shown that each additional household contributes directly to an increasing demand for car-parking space.

11.22 Further conversions of properties, therefore, in streets where on-street parking is already under stress and there is no opportunity for providing off-street car parking, will generate an increased demand for on-street parking which will impose serious consequential effects on the environment, and particularly on the health and safety of local residents - both directly and also indirectly through the obstruction of emergency/social services vehicles.

11.22a However, in some cases, particularly in respect of residential uses above commercial premises, it is impracticable and impossible to fully meet with the above standards or provide any off street parking at all. The Council recognises such constraints and that not all households have a need for private cars, particularly those in central locations such as town centres which are highly accessible by public transport and well served by local services. The need to make use of vacant properties and meet the Borough’s housing need is so great that it may be acceptable in certain circumstances, to allow lower levels of parking provision or car- free conversions. In such cases, the demand for on-street parking space may need to be restrained through, for example, measures such as the developer undertaking to prevent future tenants or owners of properties from applying for, or obtaining on- street residents parking permits. The council publishes Supplementary Planning Guidance identifying different levels of public transport accessibility throughout the borough, which will be one of the factor taken into account in determining whether the parking requirements identified in Table 11.1 should be relaxed.

11.23 The maximum residential demand for on-street car-parking spaces occurs in the middle of the night. At such times both the operation and the enforcement of on- street parking controls tend to be at a minimum level. Moreover, the Council's policy objective in implementing on-street parking controls is to discourage the use of cars, particularly for commuting to work, and not the ownership of a car, except in certain circumstances where conversions would otherwise increase demand for on-street parking to the detriment of existing residential amenity.

11.24 For these reasons the Council intends to apply the above standard.

11.25 Accordingly, on the basis of the procedure set out in Appendix 11.1, the levels of overnight parking will be surveyed for identified lengths of streets and those parking levels will then be compared with the notional on-street parking capacity, to assess the acceptability (or otherwise) of any proposed conversion.

STANDARD S9 - UPWARD EXTENSIONS OF BUILDINGS

Chapter 11 407 London Borough of Hammersmith and Fulham: UDP Alterations

S9.1 DESIGN PRINCIPLES

Any upward extension of a building, involving an extension to the main roof of the building, should normally be designed so that the building, as extended, has an integrated appearance, with the design of the extension having due regard to the proposed appearance of the building as a whole. In a building within a conservation area, and elsewhere in a building forming part of a pair or terrace of buildings, no upward extension will be allowed unless the appearance of the building, as extended, is compatible with that of existing adjacent buildings.

11.26 Extra storeys added to flat-roofed or valley-roofed properties - and also any roof extensions to pitched-roof properties (e.g. with dormer windows or mansard roof slopes or incompatible or unacceptable ridge heights) - can often appear incongruous. Generally the extended building should be treated as a single architectural entity. In most cases, this will be done by making the extension visually subordinate to the original building, respecting its design character, scale and massing; and this will be the case generally in conservation areas and other sensitive locations. Elsewhere, in extending a building upwards, there may be scope for achieving an integrated appearance by making more extensive elevational changes to the building as a whole. Generally the building's setting (for example, in a terrace or as one of a pair of identical properties) will often make such an extension visually unacceptable. This is of over-riding importance in conservation areas, but applies just as well elsewhere, where, for example, the visual integrity of a whole residential terrace can be destroyed by one unsympathetic roof extension.

S9.2 DAYLIGHT AND SUNLIGHT TO ADJOINING PROPERTIES

Any additional storey must be designed to safeguard daylight and/or sunlight to neighbouring properties.

11.27 Apart from its impact on the appearance of a building and its setting, a roof extension can take light from neighbouring properties - and this should be avoided if it is such as to contravene normal daylight and sunlight standards.

STANDARD S10 - ROOF EXTENSIONS OF BUILDINGS IN PAIRS OR TERRACES

S10.1 DESIGN GUIDELINES

Where it is considered acceptable, in accordance with standard S.9, to extend the roof of a building that forms part of a pair or terrace of buildings, then that extension should be designed having regard to the following guidelines.

1. New roof slopes should not be steeper than an angle of 70 degrees to the horizontal plane.

2. New windows in a roof slope should preferably continue the spacing, frequency and type of windows in the storeys beneath, continuing the same visual balance between vertical and horizontal elements.

3. Roof materials should match the original in substance and pattern.

Chapter 11 408 London Borough of Hammersmith and Fulham: UDP Alterations

4. Important original features (e.g. gables and turrets) should be retained intact and accommodated satisfactorily in the extension design.

5. Roof extensions to properties with sloping roofs should generally retain the use of sloping roofs. An exception may be made only on the rear elevation of a property - and then only where one or more back additions would help screen the roof extension and prevent it dominating neighbouring properties and/or their gardens.

6. Party walls should not exceed 250 mm above finished roof level unless a greater height is required under the Building Regulations as a result of the height of an adjacent roof extension. The coping of party walls should generally run parallel to the roof slope, avoiding the appearance of party walls projecting forward from the roof slope, disrupting the visual continuity of the terrace or pair of buildings.

Any extension should not exceed the height of the lowest point of the roof on the main part of the building (for the avoidance of doubt, a parapet is not considered to be part of the roof)

11.28 Roof extensions require particularly careful design where a terrace or pair of buildings is involved. The standards set out here are of general application to ensure that any proposed extension will minimise the visual disruption to the building and its neighbours.

STANDARD S11 - ROOF STRUCTURES

S11.1 WATER TANKS, ETC.

Water tanks, fire escape housings and other structures will normally be acceptable at roof level only if they are located and designed to be visually unobtrusive. They may be acceptable on the top of additional storeys provided they are positioned in the centre of the roof adjacent to the chimney stack and are designed to be visually unobtrusive. They must not project above the visual line as measured from 1.5m high from the opposing property's wall to either the front or rear. Any roof structures must be clearly indicated on the submitted drawings when the application for an additional storey is made.

11.29 If placed on the outside of buildings, water tanks and other structures can be obtrusive features which mar the street scene. The above standards are considered necessary to control such structures. In the case of water tanks the Council has prepared specific guidelines (Water Tanks: A Guide to Applicants).

STANDARD S12 - REAR EXTENSIONS TO RESIDENTIAL TERRACED PROPERTIES

S12.1 PROXIMITY TO REAR BOUNDARY

No extension will normally be acceptable (including an external staircase or

Chapter 11 409 London Borough of Hammersmith and Fulham: UDP Alterations

similar structure) if it would result in infringing an angle of 45 degrees to the rear boundary at a height of 2 metres. (See Figure 11.1) Figure 11.1: Proximity to rear boundary.

S12.2 DAYLIGHT TO ROOMS IN ADJOINING PROPERTY

Any extension of either the roof of the back addition or to the rear of the back addition must enable an unobstructed angle of 45 degrees to be achieved to any window to a room other than to a bathroom or toilet on the ground floor of the opposing back addition if that forms the sole window to that room. This requirement needs to be satisfied by measuring either over or around the back addition as extended (see Figure 11.2).

S12.3 OUTLOOK FROM WINDOWS IN ADJOINING PROPERTY

The prospect afforded by any rear window in the main part of the building should not be significantly worsened as a result of any proposed extension built at a level higher than the level of the floor containing the affected window above ground floor level. In the case of the prospect from basement flats this standard may also relate to ground floor extensions. The angle of unobstructed visibility for this purpose shall not be reduced by more than 15%. (See Fig. 11.3). Where no rear addition currently exists at the level of the extension then on-site judgement will be a determining factor in assessing the effect which the extension will have on the existing amenities of the neighbouring properties.

Figure 11.2: Daylight to rooms in adjoining property. Figure 11.3: Outlook from windows in adjoining dwellings.

S12.4 BOUNDARY WITH ADJOINING PROPERTY

Any extension at the side of the back addition (being the back addition of the property as originally built) shall not extend above a height of 2 metres on the boundary with the adjoining property as measured from the ground level of the adjoining property. The roof of the extension shall have a maximum angle of slope not exceeding 45 degrees. (See Figure 11.4)

Figure 11.4: Boundary with adjoining property.

11.30 The common form of layout of the majority of residential dwellings in the Borough (mainly late Victorian/Edwardian properties) is of a narrow single fronted main structure forming part of a terrace and comprising either two or three floors with or without a semi-basement, together with a narrower projecting part at the rear (i.e. the back addition) which is usually of a lesser height and/or number of storeys. The ability to extend these residential properties is extremely limited given their proximity to neighbouring properties if the amenities currently enjoyed by adjoining occupiers are to be respected. The options, other than to extend the rear roof slope of the main part of the building, are generally limited to extending the back addition. This is subject to the above standards.

11.31 In some circumstances, the narrow width of the area between back additions, together with their existing length and height produce conditions which are already at the margins of acceptability in terms of the aspect and prospect afforded to those

Chapter 11 410 London Borough of Hammersmith and Fulham: UDP Alterations

rooms whose windows face into this area. Any further extension to these back additions particularly above ground level would create unacceptable conditions for adjoining occupiers and as such will generally be resisted. In order to assess the acceptability of each proposal standard S.12 should be used together with on-site judgement.

STANDARD S13 - PROTECTION OF EXISTING RESIDENTIAL AMENITIES

S13.1 LOSS OF OUTLOOK

It is commonly held that loss of view is not a material consideration in assessing the acceptability of new built development, including extensions. However a building's proximity can have an overbearing and dominating effect detrimental to the enjoyment by adjoining residential occupiers of their properties. Although it is dependent upon the proximity and scale of the proposed development a general standard can be adopted by reference to a line produced at an angle of 45ø from a point 2 metres above the adjoining ground level of the boundaries of the site where it adjoins residential properties. However, on sites that adjoin residential properties that have rear gardens of less than 9 metres in length this line should be produced at 45 degrees from a point at ground level on the boundary of the site where it adjoins residential properties. If any part of the proposed building extends beyond these this lines then on-site judgement will be a determining factor in assessing the effect which the extension will have on the existing amenities of neighbouring properties. (See Figures 11.5 and 11.5a). Figures 11.5 and 11.5a: Loss of outlook.

S13.2 LOSS OF PRIVACY

The proximity of new development can result in the overlooking of existing residential properties either from windows or roof terraces/balconies. New windows should normally be positioned so that the distance to any residential windows is not less than 18 metres as measured by an arc of 60 degrees taken from the centre of the proposed new window. If this standard cannot be met then windows should be designed to ensure that no loss of privacy will occur. (See Fig. 11.6). A roof terrace/balcony can cause a considerable loss of privacy dependent upon its size and location. Generally a roof terrace/balcony is unacceptable if it would result in an additional opportunity for overlooking or result in a significantly greater degree of overlooking and consequent loss of privacy than from the access point onto the proposed roof terrace/balcony.

Figure 11.6: Loss of privacy.

S13.2A NOISE AND DISTURBANCE FROM ROOF TERRACES AND BALCONIES

Planning permission will not be granted for roof terraces or balconies if the use of the terraces or balcony is likely to cause harm to the existing amenities of neighbouring occupiers by reason of noise and disturbance.

S13.3 ASPECT

Chapter 11 411 London Borough of Hammersmith and Fulham: UDP Alterations

No dwelling should have all its habitable room windows facing exclusively in any northerly direction (i.e. between north east and north west). Only where very special circumstances can be shown to exist which would outweigh the benefits to the amenity of the dwelling, will this requirement be relaxed.

11.32 Because the Borough has a high density of development it is necessary to ensure that in the siting and design of all new buildings the amenities of existing residential occupiers are not unduly affected and that there are safeguards against loss of outlook and loss of privacy. It is the Council's experience that the main objections to new development in this borough relate to loss of sunlight, daylight, outlook and privacy.

11.32a In addition to issues of privacy, the Council accepts that in some circumstances the use of roof terraces and/or balconies may also cause harm to the amenities of neighbouring occupiers as a result of noise and disturbance.

11.33 In respect of aspect, the reception of sunlight is important to the quality of life and therefore in designing new buildings the ability for at least one habitable room to receive sunlight should be a priority.

STANDARD S14 - ADVERTISEMENT CONTROL

S14.1 VISUAL AMENITY

The Council will normally refuse consent for any advertisements which would be displayed where the preservation of visual amenity is of prime importance.

11.34 The display of advertisements can have a considerable impact on the visual amenities of the street scene and the Council takes the view that any advertisement requiring consent should accord with certain standards to ensure that the character of individual buildings and streets is not adversely affected. There is one area of special advertisement control in the Borough namely The Mall Conservation Area. (See also policy EN14 in the Environment Chapter).

STANDARD S15 - ADVERTISEMENT RELATING TO PREMISES

S15.1 SIZE AND DESIGN, ETC.

Signs should relate in terms of size, scale, proportion, colour and design to the premises to which they are attached.

S15.2 HEIGHT

Signs will not normally be permitted above fascia level or on flank walls which do not contain a display window.

S15.3 NUMBER OF SIGNS

Not more than one fascia sign and one projecting sign will normally be acceptable on each commercial premises, and where a building contains more than one business a co-ordinated approach will be expected.

Chapter 11 412 London Borough of Hammersmith and Fulham: UDP Alterations

S15.4 PROJECTING SIGNS

Where projecting signs for shop fronts are proposed they should normally be at the fascia level. Signs located on corbels or pilasters, or in the middle of the fascia are generally over prominent and unattractive.

S15.5 ILLUMINATED SIGNS

Where a conservation area contains a commercial part then illuminated signs may be permitted provided the design, materials and means of illumination are appropriate to the character of the conservation area. Suitable methods of illumination could be either external lighting ('halo' effect or 'spot' lighting) or individually lit letters.

S15.6 CONTROL OF ADVERTISEMENT REGULATIONS

In areas of special advertisement control, as designated by the Advertisement Regulations, advertisements will not normally be allowed which exceed the deemed consent provisions under these Regulations.

11.35 These standards should be followed regarding advertisements displayed on premises. They are designed to ensure that the interests of visual amenity are protected.

STANDARD S16 - POSTER HOARDINGS

S16.1 GENERAL

Hoardings displayed above ground floor level are normally unacceptable.

S16.2 FACE OF A BUILDING

Hoardings displayed on the face of a building must be in scale and proportion with the building to which they are attached. S16.3 FEATURES

Hoardings must not obscure interesting features on a building such as decorative brickwork or functional features such as doors and windows.

S16.4 WALLS FLANKING FOOTPATHS

Hoardings displayed on the flank walls of buildings which front onto a footpath should normally be no larger than 4 sheet size i.e. 1m x 1.5m (3ft x 5ft).

S16.5 FREE-STANDING HOARDINGS

Free-standing hoardings will be unacceptable where they are out of scale with their surroundings or are located within or adjacent to areas especially sensitive to the visual impact of hoardings, i.e. conservation areas, residential areas, open spaces, or water-side land. Free-standing hoardings will be unacceptable on major traffic routes or at important road junctions where their

Chapter 11 413 London Borough of Hammersmith and Fulham: UDP Alterations

display is liable to be prejudicial to public safety. Free-standing hoardings may be permitted in certain circumstances (subject to the above constraints) to screen and disguise unattractive sites pending redevelopment or the establishment of a permanent use provided that associated landscaping is implemented as part of the scheme.

11.36 The above standards are concerned with hoardings designed to advertise products or services in general and are not necessarily related to the premises or land upon which they are attached. They are designed to ensure that the interests of visual amenity and public safety are protected.

STANDARD S17 - PARKING AND SERVICING

S17.1 REQUIREMENTS FOR PARKING AND SERVICING

All development proposals requiring planning permission shall include provision for the parking of vehicles and the servicing of premises in accordance with the standards below and as set out in Table 11.1.

11.37 The need for parking control and servicing is explained in para. 5.67 and successive paragraphs of the Transportation and Accessibility Chapter.

STANDARD S18 - PROVISION OF CAR PARKING

S18.1 CAR PARKING STANDARDS

Detailed standards for car parking are set out in Table 11.1 and apply equally to development proposals in respect of new-build alterations, extensions and change of use (residential conversions are subject to S8.2). The standards are related to the various land use classifications set out in the Town and Country Planning (Use Classes) Order 1987.

S18.2 ADHERENCE TO THE STANDARDS

The standards will normally be applied as set out.

In considering exceptional circumstances, wherein it may be permissible to vary the number of car parking spaces from that permitted by the standard, the Council will require to be satisfied that: a) when exceeding a maximum (or specific) standard, there is a proven need for the additional spaces and that the Council's overall policies will not be compromised; and b) when reducing a minimum (or specific) standard, any lesser provision will not contribute to the creation of unsafe traffic conditions, additional on- street parking stress or other problems of traffic management.

The Council may take account of the following factors when considering provision in excess of a maximum (or specific) standard:

Chapter 11 414 London Borough of Hammersmith and Fulham: UDP Alterations

i) the operational needs of a development or of a particular occupier of the premises, namely provision:

- for vehicles required for essential business use, or

- for workers, or visitors, whose journeys require the use of a car (i.e. persons with a disability or workers subject to unsocial hours or to emergency call- out); and ii) the number and type of job opportunities which will be created.

The Council may take account of the following factors when considering provision of less than a minimum (or specific) standard: iii) the characteristics of the site and its surroundings, including:

- the existence of on-street parking controls (see also S18.3), and

- the opportunity to exclude specific developments (and the future occupiers and tenants) from applying/obtaining an on-street parking permit (for residential conversions refer to S8.2)

- the availability (and proximity) of public off-street car parking (for the use of visitors, clients, customers etc.); iv) accessibility of the development to/by public transport; and v) the opportunity for dual-use of proposed/existing car spaces (i.e. the extent to which spaces, provided as part of a development, will be made available for different users at different times of the day/days of the week or to which spaces, not provided as part of a development, will be made available for users of the development.

The Council will have regard to the parking standards for employment generating development (B1-B8), together with the characteristics of the site (and the surrounding area), when determining the parking requirements for developments that are judged on their own merits.

When standards are to be varied as a result of exceptional circumstances, permission will normally be made personal to a particular occupier (or occupiers) of the premises, be granted on a temporary basis or be made subject to the conclusion of a Planning Obligation under Section 106 of the Town and Country Planning Act 1990.

11.38 If the standard is to be varied as a result of exceptional circumstances, consideration must also be given as to whether the permission should be made personal to a particular occupier (or occupiers) of the premises or be granted on a temporary basis, or be made subject to a condition linking use of any excess parking spaces to occupation by a named user.

11.39 The standard, by controlling the number of car parking spaces available (particularly for cars being used for journeys-to-work), is of critical importance to the Council's ability to secure its key transportation policy objective of achieving road traffic restraint and controlling road traffic congestion. For this reason, and because

Chapter 11 415 London Borough of Hammersmith and Fulham: UDP Alterations

the circumstances in which car parking provision will be considered in future are now very different from the previous circumstances of such consideration, the existence of a level of car parking on the site in excess of the standard will not constitute, in itself, exceptional circumstances. It is recognised, however, that the level of existing car parking provision, in conjunction of other factors, may be a relevant material factor to consider when determining a particular planning application, and may lead to a variation of the standard being permitted in appropriate circumstances.

S18.3 METHOD OF PROVISION (FOR BUSINESS, INDUSTRIAL, STORAGE AND DISTRIBUTION DEVELOPMENTS)

Car parking spaces shall normally be provided within the development site. Where a development site is located outside a controlled parking zone (CPZ) and is likely to generate an unacceptable level of additional on-street parking stress in local streets, a developer may be permitted to provide a number of additional temporary car-parking spaces within the development site (possibly in an area identified for future development when a CPZ is introduced), subject to the conclusion of a Planning Obligation under Section 106 of the Town and Country Planning Act 1990 that such spaces will be extinguished when a CPZ is implemented.

S18.4 METHOD OF PROVISION (FOR RETAIL DEVELOPMENTS):

Car-parking spaces will normally be provided off-street and all spaces (other than those for employees' cars) shall only be available for the use of the public and of shop customers during shop opening hours.

For developments in town centres, car parking spaces for the use of customers will normally be provided as part of the public car parking provision.

Where the size of a particular development would result in more than 50 spaces for the use of customers, such spaces will normally be provided either within the development site or as public car parking adjacent to the development. In all cases, such spaces will be subject to agreed opening hours and charging regimes which shall accord with those operating in other public car parks in the vicinity.

In respect of developments requiring less than 50 spaces for the use of customers, a developer will normally be expected may be required to make a commuted payment to the Council, in lieu of provision, for the purpose of the Council securing such provision in a nearby public car park. It will not normally be appropriate for a developer to make a commuted payment, in lieu of provision, for retail developments in excess of 2,500 sq. m. contribution to the Council for the purpose of enhancing access, and the safety and security of existing nearby public car parks, extending on-street parking controls or improving access by public transport, walking and cycling.

11.40 Off-street provision of car parking is particularly important in this Borough where on-street parking is a serious problem (see also the Transportation and Accessibility Chapter).

Chapter 11 416 London Borough of Hammersmith and Fulham: UDP Alterations

S18.5 INFILL HOUSING

The standards for residential dwellinghouses may be relaxed for small terrace infill developments.

11.41 In order to maintain townscape value, the Council may consider relaxation of standards where this will not cause unacceptable traffic/parking conditions.

STANDARD S19 - PARKING LAYOUT

S19.1 DESIGN AND LOCATION

The design and location of car parking areas must have regard to the convenience and personal safety of users and to the security of vehicles. S19.2 DIMENSIONS OF CAR PARKING SPACES

The minimum size of parking space for a private car shall be 2.4m x 4.8m but these dimensions may need to be increased to take account of building columns, landscaping, and available circulation and manoeuvring space. The width of circulation aisles will not normally be less than 6m for 90 degrees parking.

S19.3 CAR PARKING SPACES FOR PEOPLE WITH DISABILITIES

A proportion of car parking spaces in accordance with the provision of standard S4.2, but with a minimum provision of 1 space in developments with 10 or more car parking spaces must be marked out and reserved for people with disabilities.

11.42 The design and layout of car parking spaces are important factors which determine the quality of functioning and accessibility of developments. When considering the layout of car parking areas the Council will have regard to current Department of Transport design guidance (e.g. Design Bulletin 32 - Residential roads and footpaths; Roads in Urban Areas) and, in the case of multi-storey car parks, design guidance issued jointly by the Institution of Highways and Transportation and the Institution of Structural Engineers.

STANDARD S20 - CYCLE PARKING

S20.1 CYCLE PARKING PROVISION

The Council will require the provision of specific cycle parking and, where appropriate, associated storage and changing facilities for all proposed non- residential developments on the basis of the 1 cycle parking standards set out in Table 11.2. The standards apply equally to development proposals in respect of new-build, alterations and change of use. space for each 250 sq.m. of gross floorspace but not to developments where the provision of cycle parking in accordance with Table 11.2 would be demonstrably inappropriate The location and form of provision shall be such as to satisfy the Council that all reasonable steps have been taken to ensure both its security in use and its attractiveness to potential cyclists.

Chapter 11 417 London Borough of Hammersmith and Fulham: UDP Alterations

In certain circumstances, it may be permissible to vary the number of cycle parking spaces from that permitted by the standard, subject to the Council being satisfied that any lesser provision will adequately meet the future needs of likely occupants/users.

11.43 The importance of cycling and the need to provide for cyclists is explained in paras. 5.82 - 5.84 of the Transportation and Accessibility Chapter. Circumstances in which it may be demonstrably inappropriate to include cycle parking space in accordance with Table 11.2 may include, for example, developments for sheltered housing. In all such cases, it must be demonstrated that any lesser provision will adequately meet the future needs of likely occupants/users.

STANDARD S21 - PROVISION FOR SERVICING OF NON-RESIDENTIAL DEVELOPMENTS

S21.1 OFF-STREET SERVICING

The Council will normally require off-street servicing for all new developments and will resist its loss in existing developments.

S21.2 LOADING AND UNLOADING

Adequate space for loading, unloading and waiting of goods vehicles must be provided, normally within the development site. This provision should be one lorry space for every 500 sq.m. of gross floorspace, unless the developer can satisfy the Council that the design of the development is such that a lesser level of provision will be adequate to meet the full potential demand for servicing which may reasonably be anticipated. Consideration will also need to be given to the need for garaging commercial vehicles on the premises.

S21.3 DESIGN OF SERVICING ARRANGEMENTS

When considering development proposals the Council will have regard to the design guidance published by the Freight Transport Association, currently "Designing for Deliveries", and to any subsequent relevant guidance, surveys and research. The Council will also require that areas set aside for servicing requirements are designed/arranged in such a manner as to discourage their use for car-parking and may require the incorporation of specific measures to prevent the parking of cars in areas not designated for that purpose. The Council may also require servicing arrangements to be located in a manner which facilitates their inspection for enforcement purposes.

11.44 Justification for these standards is given in the Transportation and Accessibility Chapter.

STANDARD S22 - VEHICULAR ACCESS

S22.1 ACCESS TO PRIMARY ROADS STRATEGIC ROUTES

Chapter 11 418 London Borough of Hammersmith and Fulham: UDP Alterations

New vehicular accesses from/to a primary road strategic route will not normally be permitted. Only in very exceptional circumstances will such an access be allowed.

S22.2 ACCESS TO SECONDARY ROADS AND LOCAL DISTRIBUTOR ROADS LONDON DISTRIBUTOR, BOROUGH DISTRIBUTOR AND LOCAL ACCESS ROADS (WHERE THE LOCAL ACCESS ROAD HAS AN ESSENTIAL THROUGH- TRAFFIC FUNCTION IN THE SHORT TO MEDIUM TERM)

When considering the detail of development proposals the Council will have regard to current Department of Transport design guidance (currently including Design Bulletin 32 - Residential roads and footpaths, Roads in Urban Areas). In particular, the Council will: i) refuse the introduction of multiple access points, ii) seek to limit the number of individual access points, iii) require a servicing layout which ensures that vehicles both enter and leave sites in a forward gear, where such access is permitted.

S22.3 SIGHT LINES

New vehicular accesses and the widening of existing accesses must be designed with adequate sight lines to prevent hazards both to pedestrians and to other users of the highway.

11.45 Justification to these standards is given in the Transportation and Accessibility Chapter.

STANDARD S23 - PEDESTRIAN ACCESS

S23.1 SEGREGATION

Within new developments pedestrian and vehicular accesses should be segregated. Shared surfaces will only be acceptable where conflict between vehicles and pedestrians is minimal and the speed of vehicles is certain to be low. The safety and convenience of pedestrians shall be a prime consideration. S23.2 AMENITY SPACE

Within residential developments areas of communal open space should be readily accessible from every dwelling by a safe pedestrian route.

S23.3 RESIDENTIAL ACCOMMODATION ABOVE SHOPS, ETC.

In all developments where residential accommodation exists (or is to be provided) above ground floor retail or business premises, pedestrian access to those residential units shall either be provided or be retained to the street frontage of the building unless physically impracticable. Where such access cannot be achieved and pedestrian access is only practicable from the side or

Chapter 11 419 London Borough of Hammersmith and Fulham: UDP Alterations

rear, the access as provided shall be exclusive to the residential occupiers of the building.

11.46 Justification to these standards is given in the Transportation and Accessibility Chapter.

STANDARD S24 - FOOD AND DRINK ESTABLISHMENTS

S24.1 HOURS OF OPERATION

Hours of operation will be restricted to relate to surrounding uses e.g. A3 Uses in town centre locations may be permitted to operate later than in predominantly residential locations, or those areas where most uses only operate during the working day.

S24.12SOUND PROOFING

Sound proofing will be required to the Council's satisfaction, particularly where an establishment abuts residential accommodation, or where live or amplified music is likely to be played. Outside areas will also be regulated in circumstances which may otherwise give rise to noise nuisance.

S24.23EXTRACTION AND VENTILATION SYSTEMS

Adequate extraction and ventilation systems, of an appearance compatible with the local environment, will be required in order to prevent the transmission of any undue smells and odours generated by the premises;

S24.4 REFUSE STORAGE

Refuse storage facilities must be adequate to accommodate the refuse generated designed and located to be in keeping with the local environment.

11.47 The Council recognises the high level of demand for Food and Drink Establishments (A3 uses) in the Borough but wishes to ensure that such uses cause minimum disruption to the areas in which they are located. These uses may generate excessive traffic and car parking demands, produce noise and smells, and adversely affect other local amenities, particularly in conservation areas.

11.48 Hours of operation need to be regulated to minimise disturbance to local residents, and may therefore need to be more limited in residential areas than in town centres and other predominantly non-residential areas. It may also be necessary to regulate noise generated during permitted hours of operation, particularly where live or amplified/recorded music is played.

11.49 Adequate, and environmentally compatible, extraction and ventilation ducts are required, in order to minimise adverse impacts, which might otherwise occur, on local residents as a result of the cooking or preparation of food. Smells are a frequent cause of complaint from neighbours and it is essential for the quality of the local environment that such smells are controlled. The Council will, however, pay particular attention to the appearance of flues and is concerned these should be no larger than is necessary and positioned where they are least obtrusive.

Chapter 11 420 London Borough of Hammersmith and Fulham: UDP Alterations

11.50 The Council further aims to maintain environmental quality by requiring the provision of adequate refuse storage facilities for all new A3 uses. Where storage facilities would be visually obtrusive to residential properties or streets they should be suitably enclosed to maintain the quality of the local environment.

N.B. Grant of planning permission for an A3 use does not exempt the applicants from having to apply for any other permissions or licences that may be required, from this Council or other bodies.

The council recognises the high level of demand for Food and Drink Establishments (A3 uses) in the borough but wishes to ensure that such uses cause minimum disruption to the areas in which they are located. These uses may produce noise and smells, and adversely affect other local amenities, particularly in conservation areas.

It may also be necessary to regulate noise generated during permitted hours of operation, particularly where live or amplified/recorded music is played.

Adequate, and environmentally compatible, extraction and ventilation ducts are required, in order to minimise adverse impacts, which might otherwise occur, on local residents and other building occupants and users as a result of the cooking or preparation of food. Smells are a frequent cause of complaint from neighbours and it is essential for the quality of the local environment that such smells are controlled. The council will, however, pay particular attention to the appearance of flues and is concerned these should be no larger than is necessary and positioned where they are least obtrusive.

Chapter 11 421 London Borough of Hammersmith and Fulham: UDP Alterations

APPENDIX 11.1: ASSESSMENT OF ON-STREET OVERNIGHT PARKING AVAILABILITY/STRESS

1. The notional on-street overnight parking capacity in any street, or part of a street, will be calculated as follows: a) The total length of kerb-line will be measured for each side of a street between intersecting streets, measuring from the near kerb-line of the intersecting street at each end (or to the "dead-end"; if appropriate, in one instance). b) The following lengths of kerb-line will be identified, immediately prior to (or following) a survey of vehicles parking in the street (see para. 2 below), and excluded: i) lengths of kerb-line subject to yellow line parking/waiting restrictions in force between 2300 hours and 0700 hours; ii) lengths of kerb-line within 3.5 metres of the kerb- line of an intersecting street; iii) lengths of kerb-line adjacent to a "narrowed" carriageway; iv) lengths of kerb-line which have been "built-out"; v) lengths of kerb-line which have been "dropped" to provide crossovers or pedestrian crossing points; vi) lengths of kerb-line adjacent to a "dead-end" of street (normally 3.5 metres from the "dead-end", subject to no double-counting); vii) reserved spaces (i.e. for people with a disability, doctors or diplomats)i ; viii) "zig-zag" markings at pelican/zebra pedestrian crossings; ix) within 15 metres of traffic signals; and x) other lengths of kerb-line not available for overnight kerb-side parking, including temporary obstructions such as road works, which must be specifically identified in the survey results. c) The length of kerbside space available for overnight kerbside parking will be calculated by subtracting the lengths of kerb-line identified in sub-para. (b) (after discounting any "double-counting") from the total length of kerb-line identified in sub- para.(a). d) The notional on-street overnight parking capacity will be calculated by dividing the length of kerb-side space (in metres), which is available for overnight kerbside parking, by 5.5 - thereby allowing a notional parking space of 5.5 metres per car.

2. The street (or identified part of a street) will be surveyed between 0300 hours and 0500 hours on a weekday night (i.e. a night between midday on Monday and midday on Friday) to determine the number of vehicles (excluding two-wheeled

Chapter 11 422 London Borough of Hammersmith and Fulham: UDP Alterations

vehicles) actually parked at the kerbside. (Such times have been identified as producing the normal maximum on-street overnight car-parking demand).

3. The level of on-street overnight parking availability/stress may be identified by expressing the number of vehicles parked (para.2) as a percentage of the notional capacity (para.1(d).

Chapter 11 423 London Borough of Hammersmith and Fulham: UDP Alterations

TABLE 11.1: CAR PARKING STANDARDS

Reason for original alteration: Table 11.1 amended to recognise the need to apply maximum or specific standards for all land uses (rather than minimum standards) to reduce reliance on the private car. The table has also been amended to include a requirement for coach parking at conference facilities and, in certain circumstances, the consideration of reduced car parking for residential units.

Sub- classification by Status of Identification of Standard Land Use Class user of parking Standard space or type of accommodation

A1 Shops i) customer minimum One car space per 50 sq.m. 75 sq.m. and/or public maximum gross floor area or part thereof. use Consideration must be given to ensuring the dual use of car spaces, particularly for public use, wherever possible.

ii) employee maximum In the area north of Wormwood Scrubs use and west of Scrubs Lane, up to one car space may be provided for each 450 sq.m, or part thereof, of net site area. In the rest of the Borough up to one car space may be provided for each 600 sq.m., or part thereof, of net site area. A2 Financial and Professional (as class A1 above) Services

A3 Food and Drink Each development application will be treated on its own merits B1 Business maximum In the area north of Wormwood Scrubs and west of Scrubs Lane, up to one car space may be provided for each 450 sq.m, or part thereof, of net site area. In the rest of the Borough up to one car space may be provided for each 600 sq.m., or part thereof, of net site area. B2 General In the area north of Wormwood Scrubs Industrial and west of Scrubs Lane, up to one B3 Special car space may be provided for each Industrial 450 sq.m, or part thereof, of net site B8 Storage or area. In the rest of the Borough up to Distribution one car space may be provided for each 600 sq.m., or part thereof, of net site area.

Chapter 11 424 London Borough of Hammersmith and Fulham: UDP Alterations

C1 Hotels i) in respect of specific One car space will be required for residential each 10 bedrooms, or part thereof. accommodation One coach space will be required for each 100 bedrooms, or part thereof.

ii) hotels, where specific One extra car space will be required in other facilities maximum excess of those set out at (i) above for (e.g. ballroom, each 20 25 sq.m., or part thereof, of conference, gross floor area, set aside for those halls, etc.) are facilities. provided

One coach space will be required for each 500 sq.m, or part thereof, of gross floor area.

C2 Residential (as class A3 above) Institutions and Residential Hostels not specified in the Use Class Order.

C3 Dwelling i) private minimum Car spaces will be provided as follows: Houses specific habitable resident visitor/casual rooms spaces spaces

per dwelling unit 1 or 2 0.8 0.2 3 1.0 0.2 4 1.2 0.2 5 or more 1.4 0.2

unless a developer can demonstrate, to the Council's satisfaction, that a lesser demand will be generated

In certain circumstances a lower level of parking provision may be accepted, subject to the availability of public transport and local services, together with the practicality of meeting the full parking standard. In these circumstances, the developer must be prepared to enter into a legally binding agreement excluding future tenants and owners from applying/obtaining on-street residents parking permits.

Chapter 11 425 London Borough of Hammersmith and Fulham: UDP Alterations

ii) housing minimum The full minimum provision set out in association specific sub-paragraph (i) above, but the provision may be reduced by up to 50% 75% subject to a legally binding agreement that: • no on-street residents parking permit shall be issued to tenants or owners • the dwelling units will not be sold on, other than to another housing association which is prepared to be legally bound by the agreement, or • any future owner will provide the full number of parking spaces appropriate to any new class of ownership, in accordance with the Council's parking standards current at the time of ownership changes.

iii) municipal minimum The full minimum provision set out in specific sub-paragraph (i) above.

iv) old persons' minimum One car space per 4 dwelling units, dwellings specific subject to a minimum provision of 2 car parking spaces per development

v) dwellings for minimum The full minimum provision set out in persons with specific sub-paragraph (i) above. physical disabilities D1 Non- (as class A3 above) Residential Institutions

D2 Assembly and (as class A3 above) 1 space per 22m2 Leisure for developments over 1000m2 other than cinemas and conference facilities. For these cinemas and conference facilities, and development under 1000 m2, each application will be treated on its merits

Chapter 11 426 London Borough of Hammersmith and Fulham: UDP Alterations

TABLE 11.2: CYCLE PARKING STANDARDS

Location Land Use Location Cycle Parking Standard Category Category

Places of Work B1/A2 Business, Offices, 1/125m2 with minimum of 2 Services spaces

B1 Light Industrial 1/250m2 with minimum of 2 spaces

B2-B7 General Industrial 1/500m2 with minimum of 2 spaces

B8 Warehouses 1/500m2 with minimum of 2 spaces

Shopping A1 Food Retail Out of town 1/350m2 Town centre/local shopping centre 1/125m2

A1 Non-Food Retail Out of town 1/500m2 with minimum of 4 spaces Town centre/local shopping centre 1/300m2

A1 Garden Centre 1/300m2 with minimum of 2 spaces

Educational D1 Primary Schools 1 space per 10 staff

D1 Secondary Schools 1 space per 10 staff/students

D1 Universities, Colleges 1 space per 8 staff/students

Entertainment A3 Pubs, Wine Bars 1/100m2 with minimum of 2 spaces

A3 Fast Food Takeaway 1/50m2 with minimum of 2 spaces

A3 Restaurants, Cafes 1 space per 20 seats with minimum of 2 spaces

D2 Theatres, Cinemas 1 space per 50 seats with minimum of 2 spaces

D2 Leisure, Sports Centres, 1 space per 10 staff plus 1 space Swimming Pools per

Chapter 11 427 London Borough of Hammersmith and Fulham: UDP Alterations

20 peak period visitors

Housing C2 Student accommodation 1 space per 2 students

C3 Flats 1 space per unit

Community D1 Doctors & Dentist 1 space per 5 staff plus 1 space Surgeries, per 5 staff for visitors Health Centres & Clinics

D1 Libraries 1 space per 10 staff plus 1 space per 10 staff for visitors

D1 Hospitals 1 space per 5 staff plus 1 space per10 staff for visitors

Rail Stations Meet local demand Transport Bus Stations Meet local demand

Chapter 11 428 London Borough of Hammersmith and Fulham: UDP Alterations

Chapter 11 429 London Borough of Hammersmith and Fulham: UDP Alterations

GLOSSARY

GL1 A self-contained dwelling is a residential unit of one or more habitable rooms, whose occupier has exclusive use of all his/her amenities, including kitchen, shower/bath and W.C., and which is a single and discreet unit.

GL2 A family dwelling means a dwelling containing at least a living room and two bedrooms (i.e. three habitable rooms) of which one bedroom must exceed 10.2 sq.m. (110 sq.ft.).

GL3 A non-family dwelling means a dwelling containing two habitable rooms or less.

GL4 Net floor area (of a dwelling) means the aggregate internal area of each floor as enclosed by the external walls of a dwelling. It includes the area occupied by internal partitions or walls, the area taken up on each floor by any staircase, the area of any chimney breast or fireplace. It excludes the floor area of any addition to the dwelling as originally built, dustbin store, fuel store, garage or balcony, any area in rooms with sloping ceilings to the extent that the height of the ceiling does not exceed 1.5m (5ft.) and any porch.

GL5 Net floor area (of a room) means the area of floor enclosed by the walls of the room measured to the opposing faces. It includes the area taken up by any bay window. It does not include the area taken up by any chimney breasts or flues, the circulation space required for access through the room to another room measured as 675mm (2.25ft.) wide and any area in rooms with sloping ceilings to the extent that the height of the ceiling does not exceed 1.5m (5ft).

GL6 Plot ratio is the relationship between the gross floor area of a non-residential building and the net area of a site in wholly non-residential use or of that part of a mixed use site in non- residential use. No land shall be included in the calculation of the permitted plot ratio for a development where that land has been included in the calculation of the permissible plot ratio for another development.

GL7 Gross floor area means the overall area of the building on each floor below or above ground. It includes at each floor level:

(i) the thickness of internal and external walls;

(ii) stairs, service ducts, lift shafts, corridors and halls;

(iii) any covered passage (other than a public right of way);

(iv) cloakrooms, lavatories, kitchens and restaurants; and

(v) basement areas (other than those used for car parking or for bank vault, strong room, safe deposit or plant room purposes).

Glossary 430 London Borough of Hammersmith and Fulham: UDP Alterations

Any space allocated for car parking, for loading and unloading commercial vehicles and for public transport operational purposes shall be excluded from gross floor area, as shall any roof-top plant.

Rooms and other spaces which continue through two or more normal floors of the building (e.g. theatres, lecture halls, and atria) will be assessed as occupying that number of floors, except where it is assured (preferably by legal agreement) that those spaces shall not be used for the subsequent provision of additional floorspace by the insertion of extra floors.

GL8 A habitable room is any room used or intended to be used for dwelling purposes above 6.5 sq.m. (70 sq.ft.) in floor area except for kitchens of less than 13 sq.m. (140 sq.ft.), bathrooms and WC's. Utility rooms will not be included as habitable rooms if they have direct access to kitchens and provided they do not exceed 6.5 sq.m. (70 sq.ft.) or the kitchen and inter-connecting utility room together do not exceed 13 sq.m. (140 sq.ft.). If a habitable room has a net floor area exceeding 20.5 sq.m. (220 sq.ft.), that area shall be assessed at the rate of one habitable room per 20.5 sq.m. (220 sq.ft.) or part thereof, but an exception may be made in the case of accommodation designed to be used exclusively as one-room sheltered and other special-needs housing units.

GL9 Net site area means the area of the site as measured to its boundaries and does not include parts of the adjoining public highway.

GL10 Density relates to the amount of residential accommodation in any given area. It is measured by calculating the number of habitable rooms per hectare or acre. For individual sites the gross site area is the appropriate unit of measurement.

GL11 Gross site area applies to density calculations for residential purposes and means the area of the site plus an area calculated by multiplying the length of the site's frontage onto adjoining street(s) by half the width of the street(s) (up to a maximum of 6m (20ft.) subject to the area thus added being no more than 10% of the net site area. No part of any river or canal or railway (or its embankments) or of any public open space shall be used in density calculations. Private open space to be used exclusively in association with a proposed development (including that provided for communal use) shall be included with the gross site area.

GL12 A roof extension means any extension to the original roof and can apply to a dormer window or full-width extension to the roof of a pitched roofed property. The context in which the term is used should in most cases describe the exact form of the roof extension.

GL13 A full-width roof extension means any extension to a pitched roof property which extends the existing roof from party wall to party wall, associated with the raising of those party walls irrespective of whether it is over the whole of the roof area or only a part of it.

GL14 A mansard roof is traditionally a double-pitched roof slope having the lower part steeper than the upper. It has recently come to include a steep single-pitched roof slope used to retain the appearance of a roof while allowing the introduction, within the roof space, of extra accommodation.

Glossary 431 London Borough of Hammersmith and Fulham: UDP Alterations

GL15 A dormer window or extension means a projecting vertical window in the sloping roof of a house (OED definition). The Council considers that any roof extension which takes less than 50% of each roof slope to the original dwelling house can be classed as a dormer window or dormer window extension provided that such an extension does not involve raising either party wall.

GL16 Back addition generally means that part of a Victorian or Edwardian dwelling (which predominate in this Borough) which projects beyond the rear wall of the main part of the building and is usually of a lesser height and width. This part of the building was designed to be subordinate to the main building and normally contained subsidiary accommodation i.e. kitchens, sanitary facilities and secondary bedrooms. It enabled the developer to achieve a greater density with a narrower frontage whilst still providing some light and air to rooms at the rear.

GL17 A building for the purposes of assessing plot ratio includes any structure or erection, and any part of a building, which comprises a roof and at least one side wall.

GL18 An Infill development means a development on a site where there is a need to ensure architectural continuity and a bulk and height of development equal to that of adjoining buildings.

GL19 The daylight and sunlight angles are normally measured from a point 2 metres above ground level along the area to be protected. The measurement could be from the boundary of the site, or the building's elevation or the street's centre line whichever is appropriate. (See the BRE's "Site layout planning for daylight and sunlight - A guide to good practice" for further details).

GL20 The hours of sunlight are measured from the path the sun makes on March lst.

GL21 A Registered Housing Association is a Housing Association registered with the Housing Corporation.

GL22 Local Register of Buildings of Merit (see policy EN5) means buildings which are of local interest because of their townscape, architectural or historic interest.

GL23 LPAC is the London Planning Advisory Committee, a statutory body set up in November 1985 by all 32 London Boroughs and the City Corporation as a consequence of the abolition of the Greater London Council. LPAC's main tasks (as laid down by Parliament) are:

1. To advise the London Boroughs on planning and development issues of common interest to them.

2. To advise Government Departments on what the Boroughs think about planning and development issues.

3. To let local authorities around Greater London, and any bodies on which they and London Boroughs are represented, know what the London Boroughs think about the issues.

Glossary 432 London Borough of Hammersmith and Fulham: UDP Alterations

GL24 SERPLAN is the London and South East Regional Planning Conference, a non- statutory organisation established and maintained by the local authorities of London and the rest of South East England to monitor regional planning and transport trends and to enable the authorities to achieve a better understanding of the regional context and, by study and discussion, to secure co-ordination of policies. It gives advice on planning issues to the Secretary of State for the Environment and, when appropriate, to other Ministers.

GL25 Planning Obligations. Section 12(1) of the Planning and Compensation Act 1991 substitutes new sections 106, 106A and 106B for section 106 of the Town and Country Planning Act 1990. The new section 106 introduces the concept of planning obligations, which comprises both planning agreements and unilateral undertakings. It enables a planning obligation to be entered into by means of a unilateral undertaking by a developer as well as by agreement between a developer and a local planning authority. Such obligations may restrict development or use of the land; require operations or activities to be carried out in, under or over the land; require the land to be used in any specified way; or require payments to be made to the authority either in a single sum or periodically (see Circular 16/91 1/97 Planning Obligations for further details).

GL26 Planning Policy Guidance Notes are statements of Government policy on various topics issued from time to time to guide Local Planning Authorities in their operation of the planning systems.

GL27 ACE is an abbreviation for arts, culture and entertainment activities.

GL28 Green Corridors, for the purpose of this Plan, can be defined as extensive contiguous areas of trees and open space which straddle or run along the major road, rail and river/canal routes into London are relatively continuous areas of open space, frequently along, major transport routes. They may be narrow, often only the "unused" margins of development, but are of value as habitats for wildlife and plants and local landscape features and because they may link nature conservation areas. Certain transport routes, such as the Thames and the Canal, also act as corridors for animals and plants in the same way as green corridors. However these have been designated as nature conservation areas because of their greater nature conservation importance, and are not shown as green corridors.

GL29 Green Chains are different from green corridors in that they comprise a series of elongated open spaces linking broader areas of open space consist of larger areas of public and private open space which are linked together, often across Borough boundaries. There are no green chains in the borough. Unlike Green Corridors they are normally accessible to the public.

GLXX Longer distance walking routes are being implemented through the London walking Forum and in the Countryside Agency’s Thames Path National Trail.

GLYY. Open Space. Land laid out as a public garden, or used for the purposes of public recreation, or land which is a used as a burial ground. It excludes individual private gardens, which do not serve a wider open space function, yards, roads and car parks.

Glossary 433 London Borough of Hammersmith and Fulham: UDP Alterations

GL30 Metropolitan Walk, a link in the London-wide network of walks being set up by the Countryside Commission and LPAC.

GL31 Public Art, as mentioned in policy EN13, consists of design features, such as artistic or craft work, for a new building, refurbishment, or extension which are provided by the setting aside of a percentage of the capital costs of the development.

GL32 The Arts, as mentioned in the Community Services chapter, relate to potential cultural activities which use buildings such as theatres and libraries.

GL33 Archaeological Priority Areas are areas of particular archaeological importance or vulnerability in the Borough which have been identified by the Council with the advice of English Heritage. In these areas the Council's policies and proposals for archaeological sites will particularly apply. Planning applications affecting such areas will generate appropriate consultation, which could in turn lead to further processes of site assessment.

GL34 Hostel. There are many kinds of hostel use. The policies of the Plan distinguish between two main types:

(i) Residential: accommodation usually occupied by people of a specific group with a common interest. There will usually be an element of management supervision or support and some communal facilities. It will normally be occupied on a intended primarily for medium to long-term basis by people who do not have permanent accommodation elsewhere. catering residential occupation It may cater for a wide range of socio-economic groups, including homeless families. It excludes residential institutions in the C2 Use Class which provide an significant element of care.

(ii) Tourist: normally short-stay accommodation for those whose normal residence is elsewhere. They are for holidays or short stays and are sometimes open to the general public. They resemble hotels except that the accommodation is usually of a lower standard.

GL35 Green Travel Plans are aimed at helping employees to use alternatives to driving to work - for example public transport, walking and cycling. Green travel plans also address business’ transport use and cover travel in the course of business. Travel plans can make a major contribution to easing congestion, especially during the peak periods.

GL36 Greater London Authority Road Network (GRN). The GRN is a network of strategically important roads in the Capital which provide for longer distance journeys and link London to the national road system. These roads include motorways, trunk roads and priority (red) routes. The Mayor will be responsible for developing a strategy for the GRN and Transport for London (TfL) will have direct responsibility for its management.

GL37 Local Implementation Plans. The Mayor is required to produce a London-wide strategy to cover all forms of transport (for goods as well as people). The strategy is aimed at providing a framework for tackling London’s transport problems. Each Borough is then required to produce a Local Implementation Plan (LIP) for approval by the Mayor.

Glossary 434 London Borough of Hammersmith and Fulham: UDP Alterations

Approval is based on the LIP being consistent with the Mayoral strategy and providing for adequate implementation of this within a suitable time scale.

GL38 Community Car Pooling schemes, also known as ‘car clubs’, are aimed at sharing the ownership and use of cars. Owning a car is expensive, but individual journeys are relatively cheap. Once a car is acquired it also acts as a disincentive to using public transport. Community car sharing schemes are one solution which has proved very successful in Europe and is now being looked at in trials in Britain. The principle is different from conventional car hire in that the cars are kept locally and can be used at short notice and for short periods of time. Community Car Pooling Schemes ensure that cars are available when people really need them, but reduce unnecessary use and pressure for parking spaces.

GL39 Biodiversity the term biodiversity includes all living things and the habitats in which they live.

GL40 Biodiversity Action Plans co-ordinate action to conserve and enhance biodiversity. A Local Biodiversity Action Plan is plan of action for protecting, conserving and enhancing biodiversity at a local level.

Glossary 435 Unitary Development Plan Alterations: Proposals Map alterations

The attached schedule lists the changes that have been made to the 1994 adopted Proposals Map. The schedule is set out in UDP chapter order, for example chapter 4 Environment and chapter 9 Shopping.

A draft altered Proposals Map is available separately and can be made available on request. The map is an altered version of the 1994 adopted Proposals Map and is a result of the alterations agreed by the council as part of the review of the Plan. The draft map is subject to finalisation of colours, policy references, nomenclature and minor drafting that may be necessary for the purpose of clarification. Environment Department: Policy Group

Proposals Map Alterations CHAPTER 4: ENVIRONMENT Archaeological Priority Areas Updating to extend Archaeological Priority Areas in King Street. Notifiable Installations Identification of Notifiable Installations under the Planning (Hazardous Substances) Regulations 1992. Nature Conservation Areas Delete nature conservation area (L3) Uxbridge Road Rough and replace with a new site proposal (Site J).

Modify nature conservation area BI7 so that it does not overlap with HM Prison Service car park east of Site Proposal 65. Changes to boundary of White City Community Gardens NCA (L1) Changes to boundary of Hammersmith Park NCA (BII.2) Changes to boundary of Cathnor Park NCA (L5) Changes to boundary of Little Wormwood Scrubs as a result of borough boundary changes (L14) Changes to boundary of Fulham Palace and Bishops Park NCA (BI.4) Changes to boundary of Wendell park NCA (L4) Changes to boundary of St Pauls open space (L8) Canal Towpath Identification of towpath as a “longer distance canalside walk”. Open Spaces Show MOL with an outline as well as cross hatching. Show all areas of MOL as subject to MOL designation rather than open space designation. Identification of St Mary’s Cemetery Identification of Kensal Green Cemetery Identification of Wormwood Scrubs Identification of Little Wormwood Scrubs Identification of Latymer Upper School Playing Fields Identification of Wormholt Park Identification of Hammersmith Park Identification of Norland North Open Space Identification of Wendell Park Identification of Cathnor Park Identification of White City Community Garden Identification of Ravenscourt Park Identification of St Paul’s Girl’s School Playing Fields Identification of Bishops Park Identification of Fulham Palace and The Warren Identification of Frank Banfield Park Identification of Hammersmith Cemetery Identification of Queens Club

\\pad-deptfp1-nt\committee\leaders committee\leader'scom - next\report appendices available on request\udp\appendix 2 (new)\udp map alterations (maplist).doc 19 December 2002 1 Environment Department: Policy Group

Identification of Brook Green Identification of Normand Park Identification of Lillie Road Recreation Ground Identification of Fulham Cemetery Identification of Brompton Park Identification of Bayonne Park Identification of Furnival Gardens Identification of Parsons Green Identification of Eel Brook Common Identification of Hurlingham Park Identification of Hurlingham Club Grounds Identification of South Park Identification of William Parnell Park Identification of Queens Club Gardens Identification of St Peter’s Square Identification of St Paul’s Open Space Identification of Marcus Garvey Park Identification of Gwendwr Gardens Identification of St Paul’s Green Identification of Burlington Danes School Playing Fields and Courts Identification of Parsons Green Club. Identification of Broomhouse Lane. Identification of Fulham Football Club. Identification of Stevenage Road Identification of Queens Park Rangers Footbal Club Identification of Loftus Road Identification of Chelsea Football Club Identification of Stamford Bridge Historic Parks and Gardens Identification of Bishops Park, Fulham Identification of Fulham Palace Garden Identification of St Peters Square, Hammersmith Views Views from Hammersmith Bridge: Upstream towards Upper and Lower Mall and downstream towards Fulham Football Club Views from Putney Bridge: Upstream towards Bishops Park Views from Putney railway bridge towards Hurlingham Club grounds Views of Upper and Lower Mall from the river and opposite bank Views of Bishops Park from the river and opposite bank Views of Hurlingham Club grounds from the river and opposite bank Views of Hammersmith Bridge Views of Putney Bridge

Views from Wandsworth Bridge up and down the river, its foreshore, banks, etc be added to the list of protected views. Thames Policy Area Deletion of former Area of Special Character and replacement with Thames Policy Area. Other Rephrasing: change “Visual Corridor” to “Strategic View”. Updating of boundaries of designated conservation areas CHAPTER 5: TRANSPORT Road Schemes Deletion of T1 Western Circus Deletion of T2 Lyons Walk Deletion of T3 Hammersmith Bridge Road - diversion Deletion of T4 New Kings Road - footway widening Deletion of T5 Sands End Riverside Local Distributor Road Identification of Hammersmith Centre - revised pedestrian/highway arrangements Safeguarding for an improved footpath from Hythe Road to Willesden Junction. Safeguarding Wharves Identification of the 3 safeguarded wharves (Swedish, RMC (Comleys), and Hurlingham). Rail Safeguarding Show safeguarding for a station on the LUL Hammersmith and City Line at Wood Lane. Show safeguarding for a station at White City on the West London Line. Show safeguarding for a station at Sands End/Imperial Wharf on the West London Line. CHAPTER 7: EMPLOYMENT Employment Zones (EZ) Inclusion of former Site 84 (Old Oak Common Sidings) within Hythe Road EZ Deletion of part of Wood Lane EZ covered by revised Site 36 and its inclusion in Shepherds Bush town centre. Deletion of Richford Street housing from Richford Street EZ Deletion of Tesco and housing on former Osram site from Richford EZ Deletion of housing from Fulham Reach EZ Deletion of housing at 1-9 Lillie Road from Seagrave Road and Rickett Street EZ Deletion of housing at former Petrofina site from Carnwath EZ Deletion of housing at Watermeadow Lane, Charlow Close and Potters Road from Townmead Road/Imperial road EZ Deletion of housing at William Morris Way (Regent on the River) from Townmead Road EZ E1/10 Deletion of Freston Road part of Wood Lane and Freston Road EZ as a result of borough boundary changes with Royal Borough of Kensington and Chelsea which led to the majority of the EZ land in Freston Road being transferred to Kensington and Chelsea. Extension of Richford Street EZ at Shepherds Bush Road, with inclusion of land no longer required as part of Site 66 for development as a new fire station Modify Proposals Map by removing employment zone designation that overlaps with boundary for revised Site 36 and approved White City Centre scheme. CHAPTER 9: SHOPPING Key local shopping centres (KLSCs) Askew Road: Inclusion of nos. 63-85, 95-103, 121-155 and 120-128 Askew Road in KLSC.

North End Road (West Kensignton): Inclusion of nos. 78-84 and 155-169 North End Road in KLSC.. Greyhound Road: Inclusion of nos. 179-191 Fulham Palace Road in KLSC and deletion of nos. 24-54 Greyhound Road from KLSC. Wandsworth Bridge Road (south): Deletion of shop units in Perotti House from KLSC.. East Acton: Inclusion of 1-11 Westway in KLSC. Protected parades and clusters Munster Road: Identification of nos. 287-297, 299-305 and 296-320 Munster Road and nos. 325-337 Lillie Road Lillie Road: Identification of nos. 269-323 Lillie Road Dawes Road: Identification of nos. 1-13 Salisbury Pavement, 176-184, 133-147, 149-163 and 165-189 Dawes Road, no. 2 Filmer Road and no. 23 Sherbrooke New Kings Road: Identification of nos. 48-60, 62-80, 82-96, 251-269, 271-285 and 287-301 New Kings Road Fulham Road: Identification of nos. 604-620, 624abc-630, 632-64, 753-763, 765-781 and 783- 797 Fulham Road Fulham High Street: Identification of nos. 6-66 Fulham High Street (Parkview Court), nos. 963- 969 Fulham Road and nos. 1-9a, 15-35, 41-47 and 49-67a Fulham High Street Kings Road: Identification of nos. 559-575, 577-581, 587-599, 554-562, 564-598 and 600-612 Kings Road Brackenbury Village: Identification of nos. 127a-139 Brackenbury Road. King Street (Hamlet Gardens): Identification of nos. 294-316, 318-328, 330-340a, 344-372, 345-357 and 369-403 King Street Latymer Court: Identification of nos. 102-172 Hammersmith Road Fulham Palace Road: Identification of nos. 54-66, 82-114, 91-99, 101-111 and 113-127 Fulham Palace Road. King Street (Ravenscourt Park): Identification of nos. 182-230, 232-246a and 248-260 King Street CHAPTER 9A: TOWN CENTRES Town Centres Extension of Shepherds Bush town centre by inclusion of Site 36 White City Centre and 10a Wood Lane and land to the east of Shepherds Bush Place. Adjacent residential properties in Bulwer Street, Tadmor Street, Sterne Street, Aldine Street and Caxton Road also included (see also S36/1). Deletion of former Lime Grove Studios, now residential, from Shepherds Bush town centre. Extension to Hammersmith Centre by inclusion of properties to the rear of 120-164 King Street, including Galena Road and Albion Place. Deletion of Palace Mews, St John’s Close, 9-21 Dawes Road and 10-28 Burnthwaite Road from Fulham town centre. Deletion of 4-48 Cedarne Road from Fulham town centre. Inclusion of Walham Green Methodist Church and parts of railway land included in new Fulham Broadway development in Fulham town centre. Prime Retail frontage Deletion of nos. 238-274 and 313-371 North End Road from Fulham Town Centre Prime Retail Frontage.

CHAPTER 10: SITES Site Proposals Deletion of William Morris Way South, Site 8. Deletion of Hammersmith Centre Park, Site 17. Deletion of Hammersmith Road/Lyons Walk, Site 29. Deletion of Fulham High Street, 86-90, Site 34 Changes to the Site 36 boundary. Deletion of Old Oak Sidings, Site 40. Modification of boundary of Site Proposal 47 to show Imperial Wharf phases. Deletion of St Stephens Primary School, 29-35 and 45-49 Gayford Road, Site 54 Deletion of Riverside Studios, Site 76. Deletion of Marks and Spencer Warehouse, Wood Lane, Site 78 Deletion of Odeon 1 Cinema, Shepherds Bush, Site 79 Deletion of Kennedy Institute, Bute Gardens, Site 83 Deletion of Old Oak Common Sidings, Site 84 New site for Chelsea Harbour II, Site 22a Alterations to Coomer Place (southside) site 63a to reflect extended site which includes A1 Garage Delete Site 66, Former Northcroft School. Incorporate Site 71 in Site 32. Delete West London Hospital, Hammersmith Road, Site 72. Delete BBC White City, Site 82. Delete Nigel Playfair Avenue, car park and cinema, Site 75. New site policy for Riverside Industry Block, Townmead Road, Site A New site policy for Carnwath Road wharves, Site B New site policy for Former BT telephone exchange, Thaxton Road/North End Road, Site C New site policy for Fulham Island site, Site E New site policy for Hammersmith Palais, Site F New site policy for Wimpeys, 26-28 Hammersmith Grove, Site G New site policy for A40/Savoy bingo club site, Site H New site policy for Queen Charlotte’s Hospital, Site I New site policy Site J, for 392-398 Uxbridge Road (the Rough), replacing nature conservation site. Borough boundary changes with Kensington and Chelsea 1 April 1996 BC/1 Part of Little Wormwood Scrubs transferred to LBHF. BC/2 Bracewell Road and parts of Brewster Gardens, Dalgarno Gardens and North Pole Road (including key local shopping centre); parts of Latimer Road, Freston Road, Bramley Road, St Anns Road and adjacent roads (comprising part of Wood Lane/Freston Road employment zone, together with a number of Council and Housing Association dwellings) and Westway Travellers site transferred to RBKC. BC/3 Norland Road and Kingsdale Gardens transferred to RBKC. BC/4 Section of railway land between Hammersmith Road and West Cromwell Road transferred to LBHF BC/5 Section of railway land between Lillie Road and Fulham Road transferred to LBHF BC/6 Wandon Road dwellings transferred to RBKC.

\\pad-deptfp1-nt\committee\leaders committee\leader'scom - next\report appendices available on request\udp\appendix 2 (new)\udp map alterations (maplist).doc 19 December 2002 5