planning report PDU/2829/01 15 May 2012 St Barts Estate, Smithfields in the City of London planning application no. 12/00256/FULEIA Strategic planning application stage 1 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 Mixed use redevelopment of land bounded by Little Britain Street and Bartholomew Close comprising 216 residential units, 32,042 sq.m. office space, and 2,452 sq.m. retail uses, together with highways, public realm and landscaping works. The applicant The applicant is Barts Two Investment Property Ltd and the architect is Sheppard Robson Architects. Strategic issues The principle of providing a mixed use development including offices, retail and housing within the Central Activities Zone is acceptable in strategic planning policy terms. Further information and discussion is required in relation to housing, in order to ensure that the maximum reasonable amount of affordable housing is secured and that the housing mix meets local needs. Outstanding issues in relation design, access, sustainability and transport also require addressing in order to fully comply with the London Plan. Recommendation. That the Corporation of London be advised that the application does not comply with the London Plan, for the reasons set out in paragraph 103 of this report; but that the possible remedies set out in paragraph 105 of this report could address these deficiencies. Context 1 On 10 April 2012 the Mayor of London received documents from City of London Corporation 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 21 May 2012 to provide the Corporation 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. page 1 2 The application is referable under the following categories of the Schedule to the Order 2008: Category 1A: Development which comprises or includes the provision of more than 150 houses, flats, or houses and flats. Category 4: Development in respect of which the local planning authority is required to consult the Mayor by virtue of a direction given by the Secretary of State under article 10(3) of the GDPO (in relation to LVMF protected vista 1A.2) 3 Once the City of London Corporation 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 environmental information for the purposes of the Town and Country Planning (Environmental Impact Assessment) Regulations 2011 has been taken into account in the consideration of this case. 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 This 1.3ha site comprises an area bounded by Little Britain, Bartholomew Close, Albion Way and Montague Street in Smithfield, between Barbican and Farringdon within in the City of London. The existing buildings range in style and architectural quality and contain approximately 39,200 sq.m. of hospital floor space, offices, and education uses. 7 The nearest Transport for London Road Network (TLRN) route is the A201 Farringdon Road located approximately 600 metres west of the site. Montague Street borders the site to the east and forms part of the Strategic Road Network (SRN). The site has a pubic transport accessibility assessment (PTAL) rating of 6b with equates to an excellent level of access to public transport based on a scale of 1-6 where 1 is low and 6 is high. A total of 18 bus services are within reasonable walking distance of the site. The nearest London Underground station is St Pauls, located approximately 300 metres south of the site. Barbican, Farringdon, Mansion House and Bank London Underground stations are also all within a 900 metre walk of the site providing access to six London Underground lines. National Rail services are also available from Farringdon and Moorgate, both within a 900 metre walk of the site. 8 The majority of the site lies within the Smithfield Conservation Area, and whilst none of the buildings on the site are listed, it adjoins Church of St Bartholomew the Great and its gateway that are Grade 1 and Grade II* respectively. The site is within the Central Activities Zone, the Farringdon/Smithfield Area for Intensification, and part of the site is within the lateral assessment area for the protected view of St Paul’s Cathedral from Alexandra Palace. page 2 Fig 1: aerial photo of site (source: submitted DAS) Fig 2: Location of listed buildings around the site (source: submitted DAS) Details of the proposal 9 The scheme proposes demolition, part demolition and part refurbishment of the existing buildings on the site and development of new buildings of up to thirteen storeys to provide a mixed use scheme containing residential and commercial uses. 10 In total, 261 residential units are proposed, comprising 1 studio, 97 one-bed, 97 two-bed, 10 three-bed and 11 penthouse apartments. Office floor space totalling 32,042 sq.m. and 2,452 sq.m. of retail floor space is proposed. 11 New areas of open space, upgrading of existing open space, alterations to pedestrian routes and public routes, together with landscaping works are also proposed. page 3 Fig 3: aerial view of proposals (source: submitted DAS) Case history 12 The applicant engaged in pre-application discussions with GLA officers throughout 2011, where the principle of the development was acceptable, subject to resolution of issues in relation to delivery of affordable housing, design, inclusive design, climate change and transport, including Crossrail. Strategic planning issues and relevant policies and guidance 13 The relevant issues and corresponding policies are as follows: Mix of uses London Plan Housing London Plan; Housing SPG; Interim Housing SPG; draft Housing SPG; Housing Strategy; draft Revised Housing Strategy; Providing for Children and Young People’s Play and Informal Recreation SPG; draft Providing for Children and Young People’s Play and Informal Recreation SPG; Affordable housing London Plan; Housing SPG; Interim Housing SPG; draft Housing SPG; draft Affordable Housing SPG; Housing Strategy; draft Revised Housing Strategy; draft Early Minor Alteration to the London Plan Density London Plan; Housing SPG; Interim Housing SPG; draft Housing SPG Historic Environment London Plan; World Heritage Sites SPG; Circular 07/09 Tall buildings/views London Plan, Revised View Management Framework SPG Urban design London Plan; Access London Plan; Accessible London: achieving an inclusive environment SPG; Planning and Access for Disabled People: a good practice guide (ODPM) Regeneration London Plan; the Mayor’s Economic Development Strategy page 4 Sustainable development London Plan; Sustainable Design and Construction SPG; Mayor’s Climate Change Adaptation Strategy; Mayor’s Climate Change Mitigation and Energy Strategy; Mayor’s Water Strategy Transport/parking London Plan; the Mayor’s Transport Strategy; draft Early Minor Alteration to the London Plan; Crossrail London Plan; Mayoral Community Infrastructure Levy; Crossrail SPG 14 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 2011 City of London Core Strategy, the 2002 Unitary Development Plan and the 2011 London Plan. 15 The following are also relevant material considerations: The National Planning Policy Framework and Technical Guide to the National Planning Policy Framework; The draft Development Management Development Plan Document (Issues and Options Stage); The Early Minor Alteration to the London Plan. Principle of redevelopment and mix of uses 16 The existing site comprises a collection of hospital, education and office uses. The site was acquired by the applicant from the Trustees of St Bartholomew’s and the Royal London Charitable Foundation. This followed a decision by the NHS Trust to expand facilities on the main campus nearby and elsewhere in the NHS estate, thereby releasing the buildings. 17 Policy 3.16 of the London Plan refers to protection of social infrastructure, stating that proposals that result in a loss in areas of defined need, without realistic re-provision, should be resisted. Policy 3.18 refers to education facilities and resists the loss unless it can be demonstrated that there is no ongoing future demand. Noting the presence of nursing accommodation, policy 3.14 of the London Plan states that the loss of hostels, staff accommodation and shared accommodation that meet an identified need shall be resisted unless the existing floor space is satisfactorily re-provided to an equivalent or better standard. 18 In considering the acceptability of the change of use, it is noted that the NHS Trust is presently redeveloping and expanding the adjacent site to provide additional hospital facilities, with approximately 97,000 sq.m. of medical floorspace being proposed as part of an approved PFI scheme. As a result, the existing buildings on the site will become surplus to requirements, and generates revenue for the former owners. There would be an overall loss of approximately 10,000 sq.m. but as noted by the applicant, the PFI scheme rationalises and consolidates the medical functions of the hospital and creates better net:gross floor space ratios. On balance, this is acceptable. The education function would also be absorbed by facilities and services provided elsewhere, noting that City University has a programme in place to relocate to the Northampton Square Campus.