planning report GLA/5035/01 4 March 2019 Victoria Tower Gardens, Millbank in the City of Westminster planning application no. 19/00114/FULL Strategic planning application stage 1 referral Town & Country Planning Act 1990 (as amended); Greater London Authority Acts 1999 and 2007; Town & Country Planning (Mayor of London) Order 2008. The proposal Installation of the United Kingdom Holocaust Memorial and Learning Centre including excavation to provide a basement and basement mezzanine for the learning centre; erection of a single storey entrance pavilion; re- provision of the Horseferry Playground and refreshments kiosk; repositioning of the Spicer Memorial; new hard and soft landscaping and lighting around the site; and all ancillary and associated works. The applicant The applicant is the Secretary of State for Housing, Communities and Local Government and the architects are Adjaye Associates and Ron Arad Architects. Strategic issues summary Land use: The provision of a United Kingdom Holocaust Memorial and integrated Learning Centre, which would result in wide-ranging educational, cultural and societal benefits to residents of London and the United Kingdom as a whole, would align with the broad strategic aspirations for the role and growth of London, as set out within the London Plan and the draft London Plan. The loss of open space is offset by improvements to public realm across the site and the wider public benefits of the proposals (paragraphs 17 to 27). Urban design: The proposed design of the Holocaust Memorial, along with that of the entrance pavilion and the memorial courtyard, is of a high quality. Conditions should be secured to ensure the use of high quality materials and effective maintenance of the site and surrounds (paragraphs 28 to 40). Historic environment: The proposed development would lead to less than substantial harm to existing heritage assets in and around the application site. However, any harm would be offset by both the heritage benefits of the development and the wider public benefits arising from the proposals (paragraphs 43 to 60). Inclusive design: In accordance with Policy 7.2 of the London Plan and Policy D3 of the draft London Plan, further detail is required to demonstrate inclusive, safe and unhindered access is provided to each of the entrances (paragraph 41 to 42). Climate change: The total reduction in carbon emissions for the development falls short of the 35% required by Policy 5.2 of the London Plan, as such the applicant is required to provide further energy efficiency improvements (paragraph 61 to 62). Transport: The applicant is encouraged to discuss the proposals for vehicular access to the site with the relevant transport authorities given the future aspirations for improved pedestrian movement and safety within the area. (paragraph 63 to 65). Recommendation That Westminster Council be advised that the application broadly complies with the London Plan and draft London Plan. However, further consideration should be given to the issues set out in paragraph 69 of this report. page 1 Context 1 On 23 January 2019 the Mayor of London received documents from Westminster City Council notifying him of a planning application of potential strategic importance to develop the above site for the above uses. Under the provisions of The Town & Country Planning (Mayor of London) Order 2008 the Mayor has to provide the City Council with a statement setting out whether he considers that the application complies with the London Plan, and his reasons for taking that view. The Mayor may also provide other comments. This report sets out information for the Mayor’s use in deciding what decision to make. 2 It is understood that the application has been referred under Category 3E of the Schedule to the Order 2008: • “Category 3E: Development (a) which does not accord with one or more provisions of the development plan in force in the area in which the application is situated; and (b) comprises or includes the provision of more than 2,500 square metres of floorspace for a use falling within any of the following classes in the Use Classes Order … (xi) class D1 (non-residential institutions).’ 3 Full clarification on the referral criteria has been sought from Westminster City Council but has not been provided at time of writing. 4 Once Westminster City Council has resolved to determine the application, it is required to refer the application back to the Mayor for his decision as to whether to direct refusal; or allow the Council to determine it itself. 5 The Mayor of London’s statement on this case will be made available on the GLA website www.london.gov.uk. Site description 6 The application site is located within Victoria Tower Gardens, a triangular shaped park on the north bank of the River Thames. Victoria Tower Gardens is bound to the north by Black Rod’s Gardens and the Parliamentary Education Centre, to the east by the River Thames, to the south by Lambeth Bridge and to the west by Millbank. The park is managed by the Royal Parks and is accessible to the public during daylight hours and accessed through four gated entrances off Millbank and one from Lambeth Bridge. 7 Victoria Tower Gardens is a Grade II Registered Park, first created in the late nineteenth century and extended in 1900. Victoria Tower Gardens is home to a number of listed structures; the Burghers of Calais (Grade I listed); the Buxton Memorial Fountain (Grade II* listed); the Emmeline Pankhurst Memorial (Grade II listed); and the River Embankment from the Houses of Parliament to Lambeth Bridge (Grade II listed) which forms the eastern edge of the Gardens. Victoria Tower Gardens is also adjacent to the Palace of Westminster (Grade I listed) and Westminster Abbey (Grade I listed) which collectively form part of the Westminster World Heritage Site. 8 There are several other designated heritage assets in close proximity to the application site including: Lambeth Bridge (Grade II listed); Victoria Tower Lodge and Gates to Black Rod’s Gardens (Grade I listed); Norwest House, Millbank (Grade II listed), The Church Commissioners (Grade II* listed) and Lambeth Palace (Grade I listed) on the opposite side of the River Thames. The application site is located within the Westminster Abbey and Parliament Square Conservation Area and is to the east of the Smith Square Conservation Area. page 2 9 This application site also contains the Horseferry Playground, a refreshments kiosk and the non-designated Spicer Memorial. 10 The site lies in the Central Activities Zone (CAZ) as identified in the London Plan and draft London Plan. Westminster Station is 500 metres to the north of the site (Circle, District and Jubilee Line). There are six bus stops on Millbank North with a bus lane running southbound adjacent to the site. Millbank North is part of the Strategic Road Network (SRN) for which TfL have oversight responsibilities and Westminster City Council is the highway authority. Millbank Roundabout, Millbank South and Lambeth Bridge are part of the Transport for London Road Network (TLRN). The Public Transport Access Level (PTAL) of the site is 6a ‘excellent’ (on a scale of 0-6b where 6b is the highest). Details of the proposal 11 The proposals would involve the installation of the United Kingdom Holocaust Memorial within Victoria Tower Gardens including excavation to provide a basement and basement mezzanine learning centre, the creation of a new memorial courtyard and the erection of a single storey entrance pavilion. The proposals would also involve public realm/landscaping works within Victoria Tower Gardens including new and resurfaced footpaths, hard and soft landscaping and lighting. Additionally, the proposals would see the re-provision of Horseferry Playground and refreshments kiosk and the repositioning of the Spicer Memorial. The proposals would see the provision of the following land uses: Table 1: Proposed land uses and floorspace Use Proposed Floor Area (sq.m.) Learning Centre (Class D1) 3,258 Entrance Pavilion (Class D1) 95 Refreshments Kiosk (Class A1) 41 Total 3,394 12 The operational requirements of the proposals necessitate a secure perimeter around the entrance pavilion which would control access through approximately 7% of the existing 2.5 hectare Victoria Tower Gardens. Entrance to the secure area would be ticketed but is understood that there would be no fee for this entry. Case history 13 While the application has not been subject to GLA pre-application process, informal discussions have been held in relation to the proposals. Strategic planning issues and relevant policies and guidance 14 Section 38(6) of the Planning and Compulsory Purchase Act 2004 requires decisions to be made in accordance with the Development Plan unless material planning considerations support a different decision being taken. For the purposes of Section 38(6) of the 2004 Act, the development plan in force for the area is the Westminster City Plan (2016): Strategic Policies page 3 (2013) the saved policies in the Westminster Unitary Development Plan (2007, saved 2010) and the London Plan 2016 (Consolidated with Alterations since 2011). 15 The following are relevant material considerations: • The National Planning Policy Framework; • National Planning Practice Guidance; • Draft London Plan (December 2017) and the Minor Suggested Changes to the draft London Plan (August 2018), which should be taken into account on the basis explained in the NPPF; • Westminster World Heritage Site Management Plan. 16 The relevant issues and corresponding policies are as follows: • Principle of Development London Plan; Central Activities Zone (CAZ) SPG • Urban design & heritage London Plan; Shaping Neighbourhoods: Character and Context SPG. • Inclusive design London Plan; Accessible London: Achieving an Inclusive Environment SPG; • Climate Change London Plan; Sustainable Design and Construction SPG; Mayor’s Environment Strategy; • Transport London Plan; Mayor’s Transport Strategy Land Use Principle 17 Policy 2.1 of the London Plan seeks to ensure that London retains and extends its global role as a centre for education and culture.