planning report D&P/4231a/01 8 October 2018 Graphite Square, Vauxhall in the London Borough of Lambeth planning application no. 18/03773/FUL 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 Demolition of existing buildings and redevelopment with a residential led mixed-use development comprising two buildings of 14 storeys and one 11 storey building, linked by a four storey podium, containing 178 residential units, 6,972 sq.m. of office space, 84 sq.m. of flexible retail/cafe/office, a 247 sq.m. replacement church, and new public realm. The applicant The applicant is BMOR, and the architect is Ben Adams Architects. Strategic issues summary Principle of development: The redevelopment of this under-used site for residential-led mixed use purposes is strongly supported. The applicant should provide details on the relocation plans and assistance for all current occupiers, and affordable workspace provision should be considered. Affordable housing: The proposed 35% (by habitable room) affordable housing is strongly supported as a starting point; however, the applicant must fully investigate the provision of grant funding and any other available public subsidy. The low cost rent tenures should be confirmed. An early stage viability review is also required. Urban design, strategic views and historic environment: The design and residential quality of the proposals is generally of a high quality. The daylight and sunlight impacts given as the only ground for refusal of the previous scheme have been significantly reduced as a result of amendments to the massing and height of the proposals. The loss of daylight and sunlight to adjoining properties is minimal, and given the urban context and highly accessible location in central London, an appropriate balance has been struck. Transport: Further information is required on highway impacts and cycle parking. Climate change: The application does not yet comply with London Plan and draft London Plan policies on energy, flood risk, sustainable drainage, and water infrastructure. Recommendation That Lambeth Council be advised that the application does not comply with the London Plan, for the reasons set out in paragraph 71 of this report; however, the possible remedies set out in that paragraph could address these deficiencies. page 1 Context 1 On 5 September 2018, the Mayor of London received documents from Lambeth 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 until 16 October 2018 to provide the Council with a statement setting out whether he considers that the application complies with the London Plan, and his reasons for taking that view. The Mayor may also provide other comments. This report sets out information for the Mayor’s use in deciding what decision to make. 2 The application is referable under Categories 1A, 1B and 1C of the Mayor of London Order 2008: • 1A “Development which comprises or includes the provision of more than 150 houses, flats, or houses and flats.” • 1B “Development (other than development which only comprises the provision of houses, flats, or houses and flats) which comprises or includes the erection of a building or buildings (c) outside Central London and with a total floorspace of more than 15,000 square metres.” • 1C “Development which comprises or includes the erection of a building of (c) more than 30 metres high and is outside the City of London.” 3 Once Lambeth Council has resolved to determine the application, it is required to refer it back to the Mayor for his decision as to whether to direct refusal; take it over for his own determination; or allow the Council to determine it itself. 4 The Mayor of London’s statement on this case will be made available on the GLA website www.london.gov.uk. Site description 5 The 0.43 hectare site is currently occupied by a range of low quality buildings of between one and four storeys, and areas of hardstanding used primarily for car-parking. The buildings have been in various uses, including 3,975 sq.m. of office space, 1,156 sq.m. of storage space, and 369 sq.m. of church space, although a number are now vacant and semi-derelict. The site is bounded by Jonathan Street to the north, with two 13-storey residential blocks beyond; Worgan Street to the east, with 5-storey residential blocks beyond; two 5-storey residential blocks to the south, and an associated parking courtyard; and Victorian buildings in commercial use to the west, which front onto Vauxhall Walk. The wider area includes a mixture of uses; primarily residential to the east, and increasingly mixed to the west. Buildings are generally of up to 5-storeys, with two blocks of 14 storeys to the north, and taller blocks to the west along Albert Embankment. 6 The majority of the site lies within the Albert Embankment Conservation Area, and it borders the Vauxhall Gardens Conservation Area to the south and east. The site lies just outside the border of the Vauxhall Nine Elms Battersea (VNEB) Opportunity Area, and just within the border of the Central Activities Zone (CAZ). 7 The nearest section of the Transport for London Road Network (TLRN) is the A3036 Albert Embankment, 200 metres west of the site. Four bus routes operate within an acceptable walking distance of the site. The nearest station is Vauxhall, 500 metres south, with National Rail, London Underground Victoria line services and additional bus services. Cycle Hire docking stations are located 200 metres south on Vauxhall Walk, and 400 metres north-east on Black Prince Road. As a result, the site has a public transport accessibility level (PTAL) of 6a, on a scale of 0-6b, where 6b is the highest. page 2 Details of the proposal 8 The proposal is to demolish the existing office, warehouse and church buildings, and redevelop the site to provide a residential led mixed-use development with a podium building of 4 storeys (fronting onto Worgan Street), two buildings of 14 storeys (fronting onto Worgan Street), and an 11 storey building (at the junction of Worgan Street and Jonathan Street). This will provide 178 residential units, 6,972 sq.m. of office space (Use Class B1), an 84 sq.m. ground-floor flexible retail/cafe/office (flexible Use Class A1/A3/B1), a 247 sq.m. replacement church (Use Class D1), and provision of a single level basement, together with servicing, car and cycle parking, and provision of new public realm and associated works. 9 The scheme differs to the previously refused scheme (see ‘Case history’) as follows: • Block C at the northern end of the site has been reduced from thirteen to eleven storeys, with the introduction of a stepped massing at upper levels, reduced width of western elevation, and re-orientation of all units to face east/west. • The massing of Block B amended and the width of the podium bridge link to Block C reduced. • The double height pedestrian link between Blocks B and C reduced to a single storey. • Along Worgan Street, the proposed building line moved back by one metre and stepped massing introduced at podium roof level. • Block A at the southern end of the site increased from nine to fourteen storeys. Case history 10 An application (GLA Ref: D&P/4231; LPA ref: 17/02936/FUL) was submitted in July 2016 for demolition of the existing buildings, and redevelopment to provide a residential led mixed-use development of up to 14 storeys, providing 160 residential units, 8,694 sq.m. of office space, 84 sq.m. of flexible retail/cafe/office space, a 213 sq.m. replacement church, servicing, parking, new public realm and associated works. In February 2018, Lambeth Council resolved to refuse planning permission (against officer recommendation), on a single ground, that by reason of its scale and massing and proximity to neighbouring residential properties, the pproposal would adversely impact on amenity due to the sunlight and daylight received by residential occupiers in Arne House Worgan Street, and 79 Vauxhall Walk. This was considered by the Mayor of London on 5 March 2018, who advised Lambeth Council that he was content for it to determine the case itself, subject to any action that the Secretary of State may take. Strategic planning issues and relevant policies and guidance 11 For the purposes of Section 38(6) of the Planning and Compulsory Purchase Act 2004, the development plan in force for the area is the Lambeth Local Plan (2015) and the 2016 London Plan (Consolidated with alterations since 2011). 12 The following are also relevant material considerations: • The National Planning Policy Framework 2018 and National Planning Practice Guidance. • The draft London Plan 2017 and the Mayor’s Minor Suggested Changes, which should be taken into account on the basis explained in the NPPF. • In August 2017, the Mayor published his Affordable Housing and Viability Supplementary Planning Guidance. This must now be read subject to the decision in R(McCarthy & Stone) v. Mayor of London. page 3 13 The relevant issues and corresponding policies are as follows: • Employment space London Plan; draft London Plan • Affordable housing London Plan; draft London Plan; Housing SPG; Housing Strategy; Affordable Housing and Viability SPG • Housing London Plan; draft London Plan; Housing SPG; Housing Strategy; Providing for Children and Young People’s Play