Royal Docks Enterprise Zone Programme Board
Date of meeting: 04 March 2020
Title of report: Public Realm Framework and Place Update
To be presented by: Paul Creed, Head of Development & Placemaking
Cleared by: Rickardo Hyatt, Interim Deputy Executive Director – Housing and Land, GLA; and Jane Sherwood, Head of Economic Development, LBN
Classification: Public cover report with reserved appendices (commercially sensitive information)
1 Executive Summary
1.1 This paper provides an update of the team's work in developing the Public Realm Framework, progress on projects from 2019/20 and to seek endorsement for additional investment in the next phase of Public Realm Improvements, Royal Docks Greening and an Integrated Water Management Strategy.
2 Recommendations
2.1 It is recommended that the EZ Programme Board: 2.1.1 Endorses the final Public Realm Framework in Appendix A; 2.1.2 Notes the progress update on projects from 2019/20; 2.1.3 Endorses the business case for £5million of public realm improvement capital works as set out in Appendix B; 2.1.4 Endorses the business case for £700,000 of project management and professional fees as set out in Appendix C; 2.1.5 Endorses the business case for £210,000 of professional fees to support the Royal Docks Greening and Integrated Water Management Strategy as set out in Appendix D; and 2.1.6 Notes that the proposed investment be endorsed subject to a further GLA internal approval.
3 Introduction and Background 3.1 5th Studio was commissioned to lead a consortium to produce the Public Realm Framework and to support the investment of the large capital allocations in the Delivery Plan. The Baseline Study and the final version of the Public Realm Framework are now complete. 3.2 The baseline provides an audit position of current issues, challenges and movement patterns. The strategy sets out the proposed interventions that are needed, some of which are being undertaken by developers or landowners, with other projects requiring our investment. 3.3 The investments proposed will be linked to the development of the main EZ sites and the reactivation of the water of the Royal Docks as well as supporting the emerging findings of the Economic Purpose Report and the Cultural Placemaking Strategy. 3.4 The Framework will then progress into detailed design work in the first half of 2020 on those interventions which require public funding. To do this work the interventions will be separated and professional teams appointed to do the detailed design, engineering drawings and planning consents. 3.5 This detailed work will allow us to put an investment case to this Board and the LEAP for the allocation of the c.£100million from the Delivery Plan. This decision is likely to be after the May 2020 Mayoral election. 3.6 The EZ Programme Board has approved two areas of investment to date and this paper provides an update on them both: £4.4million for improvements to the public realm and to support meanwhile uses and events – these are referred to as Place Early Works. £500,000 to produce the Public Realm Framework and detailed proposals for key interventions in the public realm to support EZ development.
4 Issues for Consideration Public Realm Framework 4.1 The evidence of the public realm issues is set out in various previous reports including by Witherford Watson Mann (2012), Arup (2016) and AECOM (2018). These previous reports have been reviewed and updated into the Public Realm Framework by 5th Studio and others. It draws together an overarching narrative for the area and reflects on the planned developments and the impacts they will have. 4.2 The final Public Realm Framework is attached as reserved Appendix A and will be published following endorsement by this Board. 4.3 Improvements in the public realm will directly support the success of the EZ development sites and will improve connections between communities in the Royal Docks and surrounding area. The Framework provides us with a basis for investment in the public realm - it confirms the key routes and spaces and identifies opportunities for investment. It is based on this that further endorsements are now sought. 4.4 The Framework has been developed in consultation with developers, landowners, businesses and the community via the consultation process last year. The Framework sets out some key proposals, some illustrative concepts and identifies that the solution is not solely in the gift of the Royal Docks Team (RDT). Investment by partners will be essential in addressing the issues highlighted and the solutions proposed. 4.5 This is not a proposal for one big expensive project, but the outcome remains ambitious and transformative. The Delivery Plan set a benchmark by advocating for the transformation of the Royal Docks to “create a platform for growth, investment and activation”. This ambition is maintained through the Framework and in the approach to implementation. 4.6 The strategic objectives for the Place Programme in the Delivery Plan were as follows: “We will develop an overarching place strategy” – this is the Framework and it provides a basis for public realm improvements and to work with stakeholders to reimagine the role of the water and set a structure for long-term ownership; “We will deliver immediate improvements to priority routes and upgrades to the public realm by 2020” – these are the works we have already commissioned and are summarised in section 3.18 below; “Additional investment to fund the recommendations of the…strategy…from 2020” – these are the works we are proposing to start with those set out in Appendix B; “We will transform the North Woolwich Road” – this project is covered in the Connectivity Update Paper and further endorsement sought for a further £1m of investment; and “We will…enliven the public spaces to create a place for…cultural and creative programmes and events” – the works commissioned as summarised in section 3.18 below and those proposed in Appendix C deliver this aim. 4.7 The original approach set out in 2018 forecasted a single investment decision in 2020 to commit the remaining c.£100million of investment. Having prepared the Framework and considered the work of stakeholders, it is our view that it is not appropriate at this stage to seek that overall endorsement. The programme of works completed in 2019/20 (see section 3.18) and those proposed for 2020/21 (Appendix B) show what can be achieved in increments. However, the activation of the water will need a partnership between the local stakeholders and the RDT which may require substantial investment.
Activating the Water 4.8 The use of the water remains the key area to resolve. The Framework sets out some of the parameters and we need to work with stakeholders including The Silvertown Partnership, Excel, RODMA, the Good Hotel, the Sunborn Hotel and local residents to agree on a way forward. What the Framework does show is that more activation of the water is essential. This can be done through increasing access around it (see the Royal Victoria Dock loop below section 3.24) and across it (the new Silvertown Quays bridge). 4.9 The investment proposed below in the dock loop will also provide the basis for increasing the use of the water and a potentially much larger project on the water in partnership with Excel. 4.10 We need to work with stakeholders to agree more activity on the water and this could include: working with Excel to activate their southern facade and introduce floating structures for new activities; working with local residents to introduce floating moorings near Britannia Village; working with the Good Hotel to explore realigning the hotel to allow greater views and access to the water and introduce new uses as part of a longer-term planning and lease arrangement; working with the Sunborn Hotel to agree a new vessel and a longer-term planning and lease arrangement. These moves may not require substantial RDT investment but also the coordination of private sector investment. 4.11 Once the detail on the activation of the water is in place with stakeholder’s, further investment is likely needed and the relevant endorsement will be sought at that stage, likely to be later in 2020.
Progress Update for Projects in 2019/20 4.12 To address some of the more obvious and immediate challenges as well as provide the basis for meanwhile uses and activation, the Board endorsed an investment of £4.4million for Place Early Works in 2019/20 to cover public realm improvements. This was invested in three main locations: The Crystal Gardens (to enhance this key gateway to the Royal Docks); Royal Albert Dock (to support the first major development in the EZ) and Silvertown Quays (to support improved access to the site for events and meanwhile uses). Details of the works are set out below:
Royal Victoria Dock Crystal Gardens – we have substantially refurbished the area for improved public access, and so that the space can more easily be used for events and activation of the area. This will allow more activity to take place during 2020 and beyond as well as improve the image of this key gateway to the Royal Docks. Bikes – we have signed a contract with Brompton Bikes to provide two docking stations for their bikes, one at the Crystal and one at Newham Dockside. This will provide a new opportunity for cycle hire and allow people to make use of the new and proposed routes in and around the Royal Docks.
Royal Albert Dock Dock Edge – we have reopened and resurfaced the dock edge path to reconnect the northern edge of Royal Albert Dock. This links ABP’s first phase development with the University of East London, the London Engineering & Design UTC, Newham Dockside and the Royal Docks Adventure Centre. It provides car-free access from one end of the Royal Docks to the other for the first time in decades. Smaller packages of work have also been commissioned around the Royal Docks Adventure Centre and at Beckton Park DLR station. Meanwhile Plots – to support the activation of ABP’s development, investment has been committed to a variety of works to clear, resurface and provide utilities to several plots. These plots will be redeveloped in due course but will in the meantime support events and temporary uses including the Round the World Clipper Race in 2020 and the Solider of Orange Theatre from late 2020. In addition to these two main events, the works allow the marketing of the plots for a variety of events over the coming years. These events and uses will bring many more people to the area and help to activate and enliven the Royal Albert Dock site. We will continue to work with ABP to activate the site.
Thames Barrier Park Cafe To support the future vibrancy of Thames Barrier Park, the budget has also been used to invest in the café – to refurbish this twenty-year-old building ahead of reopening in May. It will become the centre piece of a park now surrounded by new residential developments providing many more potential users of the park. This is key to providing the community with high quality green open space and the investment in 2019/20 will be complemented with the proposed investment in 2020/21 set out below.
Silvertown Quays The first phase of Silvertown Quays now has detailed planning consent and is expected to start on site in late 2020. The site is of sufficient scale to support a variety of meanwhile uses and we have invested in works to improve access, site capacity and to make meanwhile spaces capable of larger events. We will continue to work with The Silvertown Partnership to activate the site.
4.13 In the Connectivity Programme (see connectivity update paper) there has been progress made on the North Woolwich Road proposals. These are key Connectivity projects but have a link to the Place Programme as the North Woolwich Road corridor is identified in the Framework as a key route to be improved to support development. 4.14 The team also contributed funding for the production of the Royal Docks and Beckton Opportunity Area Planning Framework (OAPF). This is now under development by GLA and LBN planning teams. 4.15 The team also supported the Public Practice programme in 2019/20 and was joined by an Associate who has provided a substantial contribution to the community consultation programme in 2019 and the creation of a new exhibition in the Crystal building. Given the high quality of the Associates in 2018 and 2019, the team will employ a further Associate from the programme in 2020. This was endorsed by the Officer Level Programme Board on 13 January 2020.
Endorsements for 2020/21 4.16 Following the success of the Place Early Works in 2019/20 and using the Public Realm Framework, which advocates investment in stages, we have identified a series of projects for investment from the existing Place budget allocation in the Delivery Plan which is within the approved £212.5million. Below is a summary of these endorsements:
Public Realm Improvements (Capital Works) 4.17 The Public Realm Improvements (Capital Works) Business Case is attached as reserved Appendix B. 4.18 We propose a budget of £5million for the 2020/21 package of works and we have made initial estimates of total costs in the Business Case. We have taken the decision to over-programme given that the estimates are preliminary and subject to detailed design and procurement. The detail in the Business Case shows how these works will support the key development sites and priorities of the team. Below is a summary of the proposal: Royal Victoria Dock Loop – Most of the edge of Royal Victoria Dock is open to the public but a key section needs improvements (Connaught Crossing - see below) and there is a missing link. The Silvertown Quays site is closed pending redevelopment and will see substantial change as construction starts in late 2020. The full site (and therefore complete public access to it) is unlikely to be completed until the 2030s. In the meantime, to fill the missing link, we propose a temporary walking and cycling route to create a Royal Victoria Dock loop. The exact form and nature of this are subject to detailed design and engineering assessment as well as discussions with The Silvertown Partnership and RODMA with any final decision being based on value for money. Connaught Crossing – this crossing is in the middle of the docks and links key communities with Excel and London City Airport. The crossing is at two levels – the upper is a dual carriageway swing bridge that connects key road links; the lower level is a pedestrian and cycling route that is dark, confusing and lacking in legibility. We are allocating budget to undertake an upgrade to the lower level crossing including replacing surfacing, improved lighting and signage and better connections at either end. The exact scope is subject to detailed design and consultation with The Silvertown Partnership, RODMA, London City Airport and Excel. Royal Victoria Bridge Lifts – the current Royal Victoria Dock bridge is a key link between Custom House station and the Silvertown community south of the docks as well as between the Custom House community and Thames Barrier Park. The bridge was built in 1998 and the original lifts have become increasingly unreliable. As part of the Silvertown Quays redevelopment, a new bridge will be built, expected to open in 2023. Once the Elizabeth Line opens at Custom House in 2021 the demand for the lifts is expected to increase. It is therefore proposed to invest in replacing these lifts now. There is a potential source of repayment from The Silvertown Partnership as part of their obligations for the development, but this is not fixed. North Woolwich – the public realm in North Woolwich is poor and there are opportunities for improvements. There is potential to work with community groups to deliver an upgrade on green spaces and link the area better to Silvertown and Beckton. The exact scope of the work is subject to consultation with the community, LBN and local stakeholders including Tate & Lyle and London City Airport. Royal Albert Dock development supporting works – in addition to the investments made in 2019/20 around the ABP development, we will continue to invest in temporary uses and events to increase the activation of the area. This will principally include servicing meanwhile plots and investing in better links between the development and the Beckton community. Improving the key overpass and connections north will make it easier and safer for local communities to access the Royal Docks.
Public Realm Improvements (Fees) 4.19 We are also seeking an endorsement of £700,000 for professional fees to support the above capital works including design, planning, engineering and project management. The Business Case for this investment is attached as reserved Appendix C.
Royal Docks Greening and Integrated Water Management Strategy 4.20 The Royal Docks Greening and Integrated Water Management Strategy Business Case is attached as reserved Appendix D. 4.21 In addition to the capital works set out above, we are also seeking endorsement of £210,000 to support projects that contribute to the Climate Emergency, improving access to green open space and the development of an Integrated Water Management Strategy. 4.22 We have gathered some of these projects under an indicative programme of Greening the Docks. Addressing the low levels of green landscaping in the area and to help address Newham’s air quality challenges, is a key priority. We are grouping three projects together: investment to plant up to 712 new trees in the wider Royal Docks area (a gross investment of £585,000 was approved by this Board issued under urgency procedure on 30 January 2020) and £150,000 investment in a new floating garden in Royal Victoria Dock. In addition, the £5m budget proposed in 3.24 above includes improvements to Thames Barrier Park. Combined these three projects will help to provide and enhance the green space in the Royal Docks and provide an opportunity for the community to engage in the process. 4.23 The RDT contributed funding for the production of the Royal Docks and Beckton Opportunity Area Planning Framework (OAPF). This is now under development by GLA and LBN planning teams. One element of specific importance to the Royal Docks is an Integrated Water Management Strategy. 4.24 This will help the team to work with the Environment Agency, LBN, Thames Water, RODMA and others to ensure that there is an integrated approach to water use and management in the area which reflects the scale of development and climate change adaptation. It is therefore proposed to make a financial contribution of £60,000 towards this.
Place Programme Expenditure 4.25 The Place Programme expenditure and endorsements made to date are set out in a table in reserved Appendix E.
5 Equality comments 5.1 The Framework undertaken by 5th Studio highlights the challenges of access to public areas and the need to improve key routes to make them properly accessible for all. The implementation of the Framework has the potential to have a positive impact on those with protected characteristics, but it is an important element of the design process to ensure this is the case. 5.2 To ensure the interventions properly consider the equality impact, the RDT is working with colleagues in City Hall and LBN to use an accessibility design review process.
6 Risk arising / mitigation 6.1 The primary risks relating to the implementation of the Framework is the programme and cost of delivery. Appendix E sets out the expenditure since the Delivery Plan was approved and the proposed investment in 2020/21. This addresses some of the optimism bias in the original forecasts and sets a realistic approach for the future. 6.2 The activation and use of the water remain a key challenge for the Royal Docks since the water is the unique aspect of the landscape. By working with local stakeholders and the community, the team will develop a realistic plan for investment and activation.
7 Financial Comments of the Executive Director Resources 7.1 The £5,000,000 capital and £910,000 revenue commitments proposed in this decision will be funded from the 2020-21 Place capital and revenue budget elements respectively of the revised Delivery Plan (see annex to 03 Funding Decisions paper). The plan is funded as a whole from a combination of retained business rates, the GLA’s Strategic Investment Fund, Housing Infrastructure Fund grant, third party income and GLA borrowing.
8 Next steps 8.1 The next steps are summarised below:
Activity Timeline EZ Programme Board endorsement March 2020 GLA Internal Approval March 2020 Project Start and Implementation From April 2020
Appendices: Appendix A – Final Public Realm Framework Report (RESERVED) Appendix B – Business Case for Public Realm Improvements (RESERVED) Appendix C – Business Case for Public Realm Fees (RESERVED) Appendix D – Business Case for Royal Docks Greening and Water Strategy (RESERVED) Appendix E – Place Programme Expenditure Breakdown (RESERVED)