planning report PDU/1825a/02 1 September 2010 Stockley Park, Iron Bridge Road, West Drayton in the London Borough of Hillingdon planning application no. 2009/2079 Strategic planning application stage II referral (new powers) Town & Country Planning Act 1990 (as amended); Greater London Authority Acts 1999 and 2007; Town & Country Planning (Mayor of London) Order 2008 The proposal Outline planning permission for a mixed used development comprising a 450 room hotel, data centre, offices, exhibition space and retail floor space, together with associated parking and landscaping. The applicant The applicant is Stockley Park Consortium Limited, and the architect is JAC Architects. Strategic issues The principle of development on Green Belt land has already been established. The key issues in relation to mitigating the impact to the Green Belt, the mix of uses, the energy strategy and transport issues in particular the provision of vehicle and cycle parking have been resolved and the scheme is now in accordance with the London Plan. The Council’s decision In this instance Hillingdon Council has resolved to grant permission. Recommendation That Hillingdon Council be advised that the Mayor is content for it to determine the case itself, subject to any action that the Secretary of State may take, and does not therefore wish to direct refusal or direct that he is to be the local planning authority. Context 1 On 2 October 2009 the Mayor of London received documents from Hillingdon Council notifying him of a planning application of potential strategic importance to develop the above site for the above uses. The application was referable to the Mayor under Category 1B, 3D and 3F of the Schedule to the Order 2008: “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”; page 1 “Development—(a) on land allocated as Green Belt or Metropolitan Open Land in the development plan, in proposals for such a plan, or in proposals for the alteration or replacement of such a plan; and (b) which would involve the construction of a building with a floorspace of more than 1,000”; and “Development for a use, other than residential use, which includes the provision of more than 200 car parking spaces in connection with that use 2 On 11 November 2009 the Deputy Mayor and Chief of Staff considered planning report PDU/1825a/01, and subsequently advised Hillingdon Council that the application did not comply with the London Plan, for the reasons set out in paragraph 93 of the above-mentioned report; but that the possible remedies set out in paragraph 95 of that report could address these deficiencies. 3 A copy of the above-mentioned report is attached. The essentials of the case with regard to the proposal, the site, case history, strategic planning issues and relevant policies and guidance are as set out therein, unless otherwise stated in this report. On 13 July 2010 Hillingdon Council decided that it was minded to grant planning permission, and on 20 August 2010 it advised the Mayor of this decision. Under the provisions of Article 5 of the Town & Country Planning (Mayor of London) Order 2008 the Mayor may allow the draft decision to proceed unchanged, direct Hillingdon Council under Article 6 to refuse the application or issue a direction to Hillingdon Council under Article 7 that he is to act as the Local Planning Authority for the purposes of determining the application. The Mayor has until 2 September 2010 to notify the Council of his decision and to issue any direction. 4 The environmental information for the purposes of the Town and Country Planning (Environmental Impact Assessment) (England and Wales) Regulations 1999 has been taken into account in the consideration of this case. 5 The decision on this case, and the reasons will be made available on the GLA’s website www.london.gov.uk. Update 6 At the consultation stage Hillingdon Council was advised that the application did not comply with the London Plan in relation to inclusive design and accessibility, climate change and transport. The applicant and Hillingdon Council have subsequently provided further information on these matters. Addressing each of these points in turn, the following is noted: Inclusive design and access 7 At the initial consultation stage, the accessibility statement that had been submitted was noted, and consideration given to access routes through the site, drop-off points, and the provision of ramps along pedestrian spines (in light of the level changes on the site) was welcomed. However, concerns were raised that due to the outline nature of the application, there was a lack of detail about the internal layouts and levels of accessibility within the buildings. 8 In response to these concerns, Hillingdon Council has secured a series of conditions which will ensure that the detailed design of the buildings at a later date demonstrate inclusive design principles. A requirement that 10% of hotel rooms are wheelchair accessible has been secured by condition, which is welcomed. 9 On this basis, it has been assured that the proposal will be in accordance with policies 4B.5 and 3D.7 of the London Plan and policies 4.5 and 7.2 of the draft replacement London Plan. page 2 Climate change mitigation and adaptation 10 At the initial consultation, additional details were requested in order to accord with relevant energy and sustainability policies. This included confirmation of the proposed approach to climate change mitigation and adaptation, including benchmarks, district heating, combined heat and power plant (CHP) sizing and the renewable energy approach. 11 The applicant has subsequently provided further information and assessment in order to address these points. The applicant has committed to the principle of optimising the size of the CHP in relation to the heat load of the site before the biomass boiler sizing is considered. A condition has been secured by Hillingdon Council, which ensures that the plant is sized to the average combined space heating and domestic hot water thermal demand, and that it is the lead heat source. The applicant has also committed to appropriate thermal management of the buildings and to looking further into the possibility of using the canal water at the detailed design stage, also secured by condition. 12 The applicant has acknowledged that the sizing and applicability of a biomass boiler for the development may be affected once the CHP size has been optimised and other factors are taken into account. In terms of renewable energy, the applicant has committed to safeguarding individual developments to allow for the installation of photovoltaic panels (PV) in the future. A condition is included in the draft decision notice that requires commitment to, and details of, PV to be confirmed at the detailed planning stage. 13 In relation to air quality, in light of the possibility of a biomass boiler being proposed at detailed design stage, a condition has been included in the draft decision notice, which requires control of air pollutants, together with a financial contribution towards air quality monitoring. This is welcomed. 14 On this basis, subject to these details being secured at detailed design stage, the scheme would accord with relevant climate change policies within the London Plan and draft replacement London Plan. Transport for London comments 15 At the initial consultation stage, several concerns were raised about the proposal, including the trip rates for the hotel, junction capacity at Horton Interchange roundabout, car parking and electric vehicle charging provision, and taxi facilities. Contributions towards improving walking and cycling infrastructure, bus service and bus stop improvements, a travel plan, delivery and servicing plan and construction logistics plan were sought. Since stage 1, TfL has worked with the Council and the applicant to address and resolve these issues, so as to make this proposal acceptable in transport terms. 16 A total of £500,000, to be paid to the Council, has been secured to fund studies and works to improve traffic flows and public transport in the vicinity of the site. Furthermore, a study at Horton Interchange covering pedestrian crossings and junction capacity will be secured through the section 106 agreement. Following agreement being reached with the Council, any necessary works resulting from these studies will be carried out accordingly. The trip generation for the hotel element has also been agreed. These measures ensure general conformity with London Plan policy 3C.2 ‘Matching development to transport capacity’ and draft replacement London Plan policies 6.3 ‘Assessing transport capacity’ and 6.11 ‘Smoothing traffic flow and tackling congestion’. 17 A maximum of 1,100 car parking spaces will be provided upon completion of the development. This represents a reduction of 40 spaces and a ratio of 1 space per 66 sq.m. for the entire development, half that permitted for the extant permission. Initially 3% of spaces will be fitted with electric vehicle charging points (capable of charging multiple vehicles simultaneously), to be secured by condition. Demand and usage of these will be monitored via the travel plan. Car page 3 parking will be introduced in phases alongside the development and 114 spaces will be designated for blue badge holders only, secured by way of condition. Overall, TfL considers that this proposal is in general conformity with London Plan policy 3.23 ‘Parking strategy’ and draft replacement London plan policy 6.13 ‘Parking’. 18 A bus network contribution of £320,000 has also been secured, to be paid to the Council for a sponsored route agreement to be agreed between TfL and Council.