Victoria Street, Buckingham Gate and Palace Street Site, SW1. draft planning brief. Version: 7 Date: March Status: Draft for public consultation

Transcription

1 Victoria Street, Buckingham Gate and Palace Street Site, SW1 draft planning brief Version: 7 Date: March 2007 Status: Draft for public consultation

2 Document title: Victoria Street, Buckingham Gate and Palace Street Site, SW1 Draft Planning Brief Version: 7 Date: 8 March 2007 Status: Draft for public consultation Filepath: j: D_City Planning Group/H drive group/david Parker/Planning Briefs/Victoria Street/070111_Draft Planning Brief_v7_Victoria Street_public consultation.doc Produced by: Planning & City Development Department, City of Westminster Council, City Hall, 64, Victoria Street, London, SW1E 6QP Contact: David Parker dparker@westminster.gov.uk; Tel:

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4 Table of Contents 1.0 Introduction Background and planning brief objectives Site description and context The statutory planning framework for the site Potential land uses Transport, highway and parking Public realm Design and conservation Sustainable design Planning obligations Construction management Contacts and further information Appendix 1 Maps Appendix 2 Listed building statements Appendix 3 Short term proposals

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6 1.0 Introduction 1.1 This draft planning brief considers matters pertaining to a potential redevelopment site at Victoria Street, Victoria Street, Palace Street, 56, 57, 58, 59 and 60 Buckingham Gate, Spenser Street and above the London Underground District railway line corridor. For the purpose of this draft planning brief, the site is divided into seven development parcels. 1.2 Some of the development parcels which are identified in this draft planning brief cut across existing land ownership holdings. The development parcels identified in this draft planning brief are intended to encourage discussion / debate among landowners, potential developers and other interested parties as to the boundary of a future major redevelopment site. 1.3 This draft planning brief provides a site specific supplement to the provisions of Westminster City Council s Unitary Development Plan (UDP) and the matters which would be required to be addressed in a formal planning application for the development of the site. Accordingly, it provides information for potential developers and their consultants and representatives, surrounding landowners, residents and other stakeholders of Westminster City Council s expectations to be met through the redevelopment of the site. 1.4 This draft planning brief does not take a position on how many development parcels should be included in any future redevelopment scheme. Instead, it identifies a possible strategic approach to development over the entire site in order to maximise development opportunity, minimise site fragmentation and provide the fullest range of townscape, access and land use benfits from these sites. The City Council expects that any new development on the site will complement and enhance the existing townscape qualities of the surrounding area and be of high quality sustainable design in its own right. 1.5 Once planning approval for a major development scheme is issued by the City Council, this planning brief will cease to operate. Should any remaining development parcels be redeveloped at a later date, then they will be considered separately to this draft planning brief and in accordance with all relevant City Council planning policies. 1.6 At this stage this is a draft brief for consultation, the results of which will be considered by the Planning and City Development Committee before the final version is adopted. 5

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8 2.0 Background and planning brief objectives Site Background Victoria Street and Victoria Street are owned by Land Securities Group PLC which also owns the recently completed Cardinal Place development (comprising office and retail floorspace located on Victoria Street between Palace Street and Bressenden Place). The success of the Cardinal Place development is likely to bring forward a proposal for the redevelopment of the Victoria Street and Victoria Street site. 2.2 In view of the possible short / medium term redevelopment of the and Victoria Street site, the City Council has considered the development potential on this part of Victoria Street. Taking into account the attributes of surrounding sites, the City Council has identified five other development parcels which could also be redeveloped. Although these sites are currently owned by a variety of interests, the draft planning brief encourages that a more comprehensive view is considered with regard to the redevelopment potential of these sites. Depending on owner agreement, proposed landuse and design justification, it might also enable the development of the air rights over the District Line Railway Corridor and on Spenser Street. 2.3 The number of development parcels eventually developed as part of a comprehensive scheme is dependent upon the aspirations of existing landowners and how they interact with the City Council s formal policies and the adopted version of this Draft planning brief. Adopted Victoria Area Planning Brief 2.4 The site is also located close to the area around Victoria Station which is subject to the City Council s Adopted Victoria Area Planning Brief (April 2006.) It identifies five principles for all major developments within the Victoria Area Planning Brief area: A. Pedestrian movement around sites and within the transport interchange should be given the highest priority. B. Proposed development must take account of, and as far as possible address, the transport requirements at Victoria. C. Proposals must not harm the residential amenity of the Victoria Area, and the integration of developments with the local community should be facilitated. D. New buildings in Victoria must be designed and built to the highest quality, and the negative impacts of construction activity should be ameliorated. The height, bulk, form, scale and use of facing materials of new buildings will be assessed against policies DES 1, 7

9 DES 3, DES 9, DES 10, DES 12, DES 15, DES 16 and RIV I and the Supplementary Planning Guidance Design Matters in Westminster. Further, building heights will be assessed against the general height guidelines in Figure 3 of this [Victoria Area] planning Brief. E. City of Westminster, TfL and the GLA will work together to support and develop the strategic and long-term objectives for Victoria. 2.5 The area described in the Victoria Area Planning Brief (see Map 2) is likely to be the subject of major redevelopment schemes primarily comprising: The redevelopment of Abford House (planning permission has been granted by Westminster City Council subject to a legal agreement). The Victoria Station Upgrade Scheme by Transport for London (TfL) with an estimated completion of Development at Victoria Station by Network Rail. The possible future redevelopment at the Victoria Coach Station site (a planning brief is currently in preparation for this site). The redevelopment of Land Securities PLC properties at Bressenden Place, including transportation improvement in conjunction with TfL and London Underground Limited (LUL). A planning application by Land Securities is expected to be lodged with the City Council in 2007 for this scheme. 2.6 These development and transportation initiatives will result in a significant amount of new development in the Victoria Station area and the upgrading of public transportation infrastructure at, and adjacent to, Victoria Station. Mindful of the wider impacts of future development at Victoria Station, the Victoria Area Planning Brief identifies other redevelopment sites in Victoria which, although are outside the formal planning brief area, may require a similar approach to development. The proximity of the City Hall site to the Victoria Station area and the likely redevelopment of the site will take a similar approach to the relevant matters from the Victoria Area Planning Brief, such as implementation mechanisms and Section 106 matters. 2.7 It is possible that further development proposals will emerge in the city blocks to the east of Buckingham Gate, namely, 50 Victoria Street, 68 Buckingham Gate sites and the New Scotland Yard site. A separate planning brief will be prepared for these sites taking into account City Council plans and policies, the Victoria Area Planning Brief and this Planning Brief. 8

10 Draft Planning Brief Objectives 2.8 The key objectives in preparing this draft planning brief are to: Encourage the creation of new development of the highest quality of architectural design to enhance the townscape of Victoria Street, Buckingham Gate, Palace Street, Wilcox Place, Howick Street and Westminster Cathedral and Piazza. Encourage any future development proposals to adopt best practice sustainable development design. Outline the City Council s expectations for future land use on the site, specifically in relation to mixed-use proposals in relation to quantums and location of uses. Improve open space opportunities in the Victoria area and the public realm in and adjacent to the site. The City Council will expect improved pedestrian permeability through the site and that the environmental amenity of surrounding residential dwellings be maintained and preferably enhanced. Meet City Council policy for the amount and location of affordable housing to be provided on site. Encourage discussion / debate among landowners of the Development Parcels identified in this draft planning brief and developers to consider a comprehensive redevelopment proposal for the site. Minimise adverse construction impacts upon surrounding residents, community facilities and businesses. Provide a framework for local and stakeholder consultation. Identify the categories of planning obligations which may be sought by Westminster City Council as part of the redevelopment of the site. 9

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12 3.0 Site description and context Site description 3.1 For the purpose of this draft planning brief, the site is divided into seven potential Development Parcels, labelled A to F on Map 1. Also see the aerial photograph of the site below: Aerial Photograph of Site Boundary of the draft planning brief site (see Map 1 for the detailed boundary) 3.2 Potential Development Parcel A: The principal frontage of the draft planning brief site is located on Victoria Street and site comprises three office buildings, namely: Kingsgate House, occupied by the Department of Trade and Industry, 13 ground floor retail units occupied by a variety of tenants (66-74 Victoria Street); Westminster City Council City Hall, One Stop Shop and St. James s Public Library, (62-64 Victoria Street); Selborne House, occupied by the Department of Constitutional Affairs, (54-60 Victoria Street); and 11

13 A portion of public highway (previously part of Spenser Street) located between the Selborne House and City Hall, Spenser Street and Seaforth Place Victoria Street General View Westminster City Council City Hall, Victoria Street Selborne House Victoria Street Kingsgate House Victoria Street 3.3 Potential Development Parcel B: The Westminster City School site is located at 51 to 57 Palace Street. It comprises three principal buildings: 51 and 57 Palace Street comprising gatehouses, with the main school building at 55 Palace Street. The nineteenth century school buildings on the site date from the The site also comprises an outdoor playground space and out buildings. 3.4 The Westminster City School is a non-diocesan, voluntary aided boys school with a mixed sixth form component and is managed by a board of governors. There are currently 798 pupils on the school roll. 3.5 Under the 152,000,000 Building Schools for the Future programme (BSF), Westminster City School has been selected as a school for capital investment. A Business Case was agreed by the Department for 12

14 Education and Skills in July 2006 allowing the City Council to commence a procurement process through the publication of a OJEU notice. Two consortia have bid for the project to work up proposals for three schools, including the Westminster City School. The design phase to develop specific designs for additional school accommodation commenced on 6 November It is proposed to lodge a planning application with Westminster City Council for these proposals during If this site is retained in educational use then the impacts of its retention upon Potential Development Parcel A will require further explanation in this draft planning brief. 3.7 Should the Westminster City School site not be retained for educational use then the City Council will expect that the height and massing of any new proposed development on Potential Development Parcel B will retain existing light levels to the rear elevation of the Crowne Plaza St James Court Hotel building. Westminster City School, Palace Street 3.8 Potential Development Parcel C: This site contains a 1970 s office building with 18 ground floor retail frontages at Victoria Street and is known as Ashdown House. Ashdown House, Victoria Street 13

15 3.9 Potential Development Parcel D: This site comprises one nineteenth century building and three late twentieth century office buildings at 57, 58, 59 and 60 Buckingham Gate. 59 and 60 Buckingham Gate 56 Buckingham Gate (right) 57 and 58 Buckingham Gate 3.10 Potential Development Parcel E: This site is currently used for transportation use as it comprises the London Underground District Line railway corridor. The roof of the tunnel is at ground level through most of the site. 56 and 57 Buckingham Gate is constructed over the tunnel There is a right to light licence between the owners of and Victoria Street and London Underground Limited (dated 26 July 2001) providing light and air to the north-west walls of the buildings through the District Line railway corridor. London Underground District Line Railway Corridor looking west towards Cardinal Place and Portland House Seaforth Place 14

16 3.12 Potential Development Parcel F: Comprises an office building at 56 Buckingham Gate located between the Crowne Plaza - London St James Hotel and Seaforth Place Potential Development Parcel G: This site comprises a small residential building facing Seaforth Place and beside the District Line railway corridor at 3-5 Seaforth Place. Listed Buildings and draft Conservation Area Audit Boundary 3.14 Potential Development Parcels A, B, D, E, F, G are not located within a City Council Conservation Area and there are no listed buildings on the site (see Map 5). Potential Development Parcel C is located within the Westminster Cathedral Conservation Area. The nearest listed building (Grade II listed) is the Albert Public House ( ) located on the corner of Victoria Street and Buckingham Gate. The Blewcoat School building (1706) is located in Caxton Street and is a Grade I listed building. It is visible from the eastern boundary of the draft planning brief site. Potential Development Parcel C is located adjacent to Westminster Cathedral which is a Grade I listed building. (See Appendix 2 for the listed building statements for these buildings.) 3.15 A Conservation Area Audit for the Birdcage Walk Conservation Area is currently being prepared by the City Council. The City Council, as part of preparing the draft Conservation Area Audit, is reviewing the boundary of the Birdcage Walk Conservation Area. Two options are being considered to extending the conservation area to between Wilfred Street and District Line railway corridor / Seaforth Place which either include or exclude the Westminster City School site 3.16 The nearest public open space is Seaforth Place located at the rear of the site (which is currently used for motorcycle and motor scooter parking), Christchurch Gardens is located on the corner of Victoria Street and Broadway. St. James s Park is also located within walking distance of the site Brick planter boxes and seating are located in the public footway outside Kingsgate House on Victoria Street and were erected by the British Property Association to commemorate the Silver Jubilee celebrations in Site Context 3.18 Surrounding buildings on Victoria Street are predominantly late twentieth and early twenty-first century buildings and are predominantly used for office uses with ground floor retail. The House of Fraser department store is located opposite Selborne House. The House of Fraser department store is a key retail anchor in this part of Victoria Street and the City Council will continue to support a department store in this location as it provides a diverse retail offer to surrounding residents and office workers. A public house, The Albert, is located on 15

17 the corner of Victoria Street and Buckingham Gate. There are two tall buildings to the south of the site, 50 Victoria Street and 65 Buckingham Gate The Grade I listed Blewcoat School building (1709) is located opposite the draft planning brief site on the corner of Caxton Street and Buckingham Gate. The City Council will expect that any new development on the draft planning brief Potential Development Parcels E, F, and G improves the setting of this listed building Immediately behind the site is the Crowne Plaza - London St James Hotel and apartments (54 and 52 Buckingham Gate respectively). There are residential dwellings located on Castle Lane. The new development opposite the site on Palace Street is the recently completed Cardinal Place development which comprises offices and ground floor retail shops. These buildings are designed in a contemporary architectural style Victoria Street is located adjacent to Westminster Cathedral Piazza. The Piazza was created as part of the development scheme for and Victoria Street. Westminster Cathedral is a Grade I listed building designed by J F Bentley and built between The City Council will require that any new development on the Victoria Street site improves the setting of the Cathedral There are currently existing public realm and management matters in and around Cathedral Piazza relating to anti-social behaviour and rough sleeping. Accordingly, a number of public realm design issues will need to be addressed as part of any major scheme for the area Accordingly the surrounding area is quite diverse in terms of building types, public realm provision, architectural styles and the materials utilised. In broad terms, the planning brief area comprises predominantly nineteenth century brick buildings behind Victoria Street and twentieth century office / retail structures using metal, glass or stone cladding on Victoria Street. 16

18 4.0 The statutory planning framework for the site 4.1 There are national, regional and borough planning policies which apply to the Victoria Street site. Respectively, these comprise: Planning Policy Guidance notes issued by the Department for Communities and Local Government (DCLG); the Spatial Development Strategy The London Plan issued by the Mayor of London; and Westminster City Council s Unitary Development Plan and City Plan. There are also Westminster City Council supplementary planning guidance documents and other policies which apply to the site. 4.2 The DCLG Government Planning Policy Guidance (PPG) notes which are primarily relevant to the site comprise: PPG 3: Housing PPG 13: Transport PPG 15: Planning and the Historic Environment PPG 16: Archaeology and Planning PPG 23: Planning and Pollution Control, including PPS23 Annex 2: Development on Land Affected by Contamination. 4.3 The Mayor of London, The London Plan Spatial Development Strategy for Greater London (February 2004). This is a regional strategic document which applies to Greater London and sets out an integrated social, economic and environmental framework for the development of London until The principal Westminster City Council plans which apply to the site comprise: The City of Westminster, Unitary Development Plan, (Adopted by Full Council, 24 January 2007). 4.5 Westminster City Council also has programmes, plans and supplementary planning guidelines and policies which apply to the site. The primary documents to be consulted include: The Civic Renewal Programme, September 2001 The City Plan, 2006 City of Westminster Supplementary Planning Guidance: - Victoria Area Planning Brief, London SW1, April Sustainable Buildings, March

19 - Design Matters in Westminster, October Access for All, February A Guide to the Siting of Security Cameras and other Security Equipment, Public Art in Westminster, Waste & Recycling Storage Requirements, March Shopfronts, Blinds and Signs A guide to their Design, May Trees and Other Planting on Development Sites, August Guidelines for the Placing of Tables and Chairs on the Highway, March Westminster Way A Public Realm Manual for the City, 2 vols., April 2004, (draft) - Draft SPG on Planning Obligations, February

20 5.0 Potential land uses Introduction 5.1 This section stipulates the range and types of uses which are likely to be acceptable to Westminster City Council in the area considered by this draft planning brief. The uses included are not exhaustive and all submitted development schemes will be judged on the overall balance of uses proposed and the effect on the townscape and amenity of nearby residential communities. All redevelopment proposals should accord with the relevant criteria as set out in the Adopted Unitary Development Plan (UDP). Location within Central Activities Zone 5.2 The site is located within the Central Activities Zone (CAZ) as defined in the UDP (Map 1.1). Accordingly the City Council anticipates a development scheme consistent with permitted CAZ uses on the site. Offices 5.3 The use of the site primarily for office space is consistent with the CAZ land uses. The City Council wishes to support CAZ uses yet minimise adverse amenity impacts upon residential areas. The UDP Policy COM 1: Provision for Office Renewal and Growth is applicable to the site. 5.4 The City Council would expect that the provision of office space is consistent with the character and function of the area. This not only includes late twentieth century office buildings on Victoria Street but existing nineteenth century buildings adjacent to and opposite the site. Accordingly, any redevelopment scheme on the site will need to demonstrate that it will not adversely impact upon the amenity of the existing hotel and housing located at the rear of the site as described at 3.13 (above). Housing 5.5 A primary aim of the UDP is to both support and protect the residential environment of existing housing, increase the amount of housing stock and to seek affordable housing within the City Council area (Policy STRA 14). 5.6 As the site is located in the CAZ, if an increase in commercial floorspace is proposed on the site then the City Council will require an equivalent amount of residential floorspace to be provided under UDP Policy COM 2: Offices and mixed use development in Central Westminster". The City Council will expect that this housing is provided on site. 19

21 5.7 However, where it is clearly not practical to provide residential dwellings on site then the provision of residential dwellings are to be provided on another site. Affordable Housing 5.8 Under UDP Policy STRA 14: Protecting and Providing Housing and Policy H4: Provision of Affordable Housing of the UDP, Westminster City Council will require affordable housing units to be provided by the developer as part of any development on the site. As the site is located in the CAZ the number of affordable units provided shall be in accordance with UDP Table 3.1 whose provisions are summarised as follows: Where the number of additional units is proposed falls within the range from ten to 24, the proportion sought is stepped from 10% to 30%; Where the number of additional units proposed is 25 or more, 30% of the additional units should be affordable. 5.9 Of the affordable housing on the site, the City Council will expect 80 per cent of the affordable housing to comprise social rented dwellings and 20 per cent intermediate housing The developer of the site is recommended to contact relevant City Council officers such as the Housing Association Supply Manager and possible RSL partners at the earliest stage in the development planning process. This is because the developer should have entered into an agreement with an RSL partner prior to the signing of a section 106 agreement with Council as the section 106 agreement will need to include all the details of the affordable housing provision and on-going management as their provision will be linked to other elements of the development scheme. Key worker housing 5.11 Westminster City Council will require key worker housing to be provided as part of the affordable housing component in any new development. As a general guideline, where 30% of affordable housing is provided on site, 5% of this housing will comprise key worker housing. In developments where the percentage of affordable housing is greater than 30%, the allocation of affordable housing units will be based on a housing needs assessment to be conducted in the context of the Housing sub-regional framework. The housing needs assessment will be undertaken to ensure that the mix of affordable housing will meet immediate and longer term needs of households requiring housing, including key workers. 20

22 Housing sizes and family housing 5.12 Westminster City Council wishes to encourage families to live in Westminster. Accordingly, a range of housing sizes is necessary to ensure larger households, especially families, will not lose that chance to live in central London, where smaller accommodation is normally provided. UDP Policy H 5: Providing a Range of Housing Sizes requires a range of housing sizes to be provided as part of new development, namely, 33 per cent of housing units to be family sized (3 or more bedrooms) and 5 per cent of this family housing to have five or more habitable rooms. This requirement will also be applied to private housing on the development site. In relation to the affordable housing component, Westminster City Council will require 42 per cent of affordable housing to have 2 bedrooms, with 33 per cent of housing units to have 3 or more bedrooms and 5 percent of the affordable housing on-site to comprise 4 bedroom units. Mobility Housing 5.13 In accordance with UDP Policy H8: Provision of Homes for Long Term Needs, all new housing units must meet the Lifetime Homes Standard and that in a housing development of 25 or more units that 10 percent of the dwellings should be designed to be wheelchair accessible or easily adaptable for residents who are wheelchair users. This percentage applies to both the market and affordable housing elements of the scheme. Dedicated off-street parking spaces must be provided in association with these units. New dwellings are required to have access and facilities for disabled people under Part M of the Building Regulations. Westminster City Council expects dwellings to be designed to the Lifetime Homes Standard to provide housing that is more flexible and adaptable than that required under Part M and so is more suitable for older or disabled people. Further information can be found in the Joseph Rowntree publication Meeting Part M and Designing Lifetime Homes (1999). Density 5.14 The UDP Proposals Map identifies the site as being located in Zone 1 for the purpose of controlling housing density. Under the UDP between 400 and 850 habitable rooms per hectare is permitted in Zone Compliance with density controls is not the primary means by which Westminster City Council will assess development proposals for the site. Primary significance will be placed upon the specific characteristics of the proposed development such as: height; bulk, layout, access, design quality and impacts on the surrounding streetscape. 21

23 Open Space / Playspace 5.16 Under UDP Policy H10 the City Council would expect the provision open space or amenity space. Under UDP Policy SOC 6, the City Council will require the provision of children s playspace and associated facilities in any new housing developments which contain 25 or more family units. Retail / entertainment facilities 5.17 The City Council will expect ground floor land uses to provide a balance of A1, A3 and A4 uses which meets the needs of Victoria area office workers and residents The provision of ground floor A1 retail units will be required by the City Council consistent with UDP Policy SS 1: Protecting retail use. A proportion of A2 uses will also be supported at ground level The City Council will consider an element of ground floor A3 and A4 uses subject to assessment by the planning applicant of the potential amenity impacts upon the surrounding area and future occupiers of the development site. However, the City Council is unlikely to support concentrations of these land uses and will require their location on parts of the site where passive surveillance from building users and passing pedestrians can be demonstrated. In particular, A3 and A4 uses must not result in adverse environmental impacts, such as noise and light, upon adjacent residential dwellings and hotel. Off street servicing provision will need to be provided consistent with UDP Policy SS15: Servicing. Hotels 5.20 As the site is located within the CAZ area the use of all or part of the site for hotel use will be consistent with UDP Policy TACE 2: New Hotels and Extension to Hotels. Any proposal for this use will be required to demonstrate that no adverse environmental and traffic effects will be generated. Furthermore, a hotel proposal containing significant amounts of accommodation must contain adequate on site facilities for off site picking up and setting down of pedestrians by coaches and taxis, and provision for vehicular servicing. Social and community facilities 5.21 The provision of community facilities on the site will be in accordance with UDP Policy SOC 1 Community Facilities in General. The City Council s Director of Specialist Social Care Services & Development has advised that there is a need for accommodation for voluntary sector groups in the Victoria area. Accordingly, the City Council may require the provision of floorspace for the accommodation of voluntary groups as part of the development scheme for the site. 22

24 5.22 At the present time the St. James s Library is located on the mezzanine level in 62 Victoria Street. Under the UDP Policy SOC 1: Community Facilities in General, the Westminster City Council will require that this facility should be rehoused in any new development on site or relocated to the Council s satisfaction. There may also be an opportunity to amalgamate the existing Victoria and St James s libraries in a new facility on this site. Educational facilities 5.23 In view of the use of part of the site for educational facilities, namely, the Wesminster City School at Palace Street, the provision of modern educational facilities on the site is encouraged. This could take the place either in the form of the replacement of the existing facilities with modern facilities or the retention of existing facilities consistent with the UDP Policy SOC 3: Educational Facilities. Leisure activities 5.24 Small-scale leisure activities primarily to serve local residents and workers may also be acceptable on the site, subject to any amenity impact. 23

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26 6.0 Transport, Highway and Parking Relevant Policy 6.1 Westminster City Council seeks to co-ordinate land-use and transportation policies so to reduce the need to travel and ensure that the most appropriate means of transport is used for each journey. In pursuit of this objective, the transport policies as set out in Chapter 4 of the UDP, seeks to increase accessibility, enhance and improve the environment, and maintain and improve the efficient operation of London s road and rail networks so as to ensure the continued attractiveness and economic viability of Westminster. Current Situation 6.2 The subject site is located near the Victoria national rail, bus and London Underground stations. It is also located near St James s Park Underground Station (Palmer Street entrance). Accordingly the site is very well serviced by public transport infrastructure. Furthermore, regular bus services use Victoria Street and a bus stop is located outside the subject site. Subject to Transport for London (TfL) advice, the redevelopment of the site may provide an opportunity to create a bus stop lay-by to minimise traffic delays on Victoria Street caused by buses stopping in a traffic lane. 6.3 A railway corridor for the District Line Underground service runs through Development Parcel D. The railway line is located in a tunnel of cut and cover construction with the roof at approximately ground level. Any development proposals either on or near the corridor will need to demonstrate that it will not impact upon the safe and efficient functioning of this infrastructure. The developer of the site will need to consult Transport for London / London Underground Limited and receive their approval (in the form of recommended designs / actions, or TfL conditions placed on the planning approval). 6.4 There is existing underground car parking on the site comprising approximately 80 car parking spaces and 10 motor cycle spaces. There is also additional street level car parking on the Selborne House site accessed via Spenser Street comprising approximately 20 car parking spaces plus additional motor cycle and bike spaces. Highway and car parking issues 6.5 The City Council expects that redevelopment proposals will result in improved pedestrian access through the site on all three frontages (assuming that all development parcels will be redeveloped). In particular, a pedestrian crossing may be required to improve pedestrian safety across Palace Street from Cardinal Place should Development Parcel B be the subject of redevelopment. Pedestrian access across 25

27 Victoria Street may also require a pedestrian crossing or another safe means of crossing the Street. 6.6 At the present time, pedestrians wishing to cross Buckingham Gate from Seaforth Place are faced with a difficult street crossing resulting from right hand turn traffic movements from Caxton Street, two way traffic on Buckingham Street and pedestrian guard railings on the corner of Buckingham Street and Caxton Street which restricts access. Any redevelopment proposals on the draft planning brief site will be expected to include a proposal for better pedestrian access across Buckingham Gate at this point and provide funding for the improvement of this intersection for pedestrians. 6.7 Other intersections at Victoria Street / Buckingham Gate and Victoria Street / Palace Street may also require improvement as a result of the redevelopment of the site and the possible increased pedestrian flows which result. Consideration will also need to be given to a pedestrian crossing point between Wilcox Place and the draft planning brief site. 6.8 The current UDP parking requirement for non-residential development permits 1 car parking space for each 1,500m² of gross floorspace. The entrance to any underground car parking facility would be accessed via Spenser Street (same as the current arrangement) or Palace Street (although needing to avoid the District Line railway corridor). The draft planning brief will require the provision of motor cycle and bike storage and the provision of disabled car parking spaces. The amount of car parking spaces and other on-site car parking requirements will be considered primarily in relation to Policies TRANS of the UDP. 6.9 Westminster City Council will expect that the off-street parking be provided for residential uses on the site. Under UDP Policy Trans 23: Off Street Parking: Residential Development Westminster the City Council will require the following off-street car parking to be provided: One car park space per unit of residential accommodation containing two bedrooms or less. One or two car spaces per unit of residential accommodation comprising three bedrooms or more, providing that the aggregate provision does not exceed 1.5 spaces per dwelling. Should special needs housing be provided on-site, then a parking standard of 1 space per 10 units will normally be applied, however, this standard may be varied to suit particular cases A parking standard of 1 space per 10 residential units will normally be applied for special needs housing (eg. sheltered housing and housing for people with disabilities) but this may be varied to suit particular cases. All parking spaces should be designed in such a way as to be accessible to retail uses. 26

28 6.11 Should off-street parking be provided for non-residential uses on-site, then UDP ( Policy Trans 24: Off-street Parking: Mixed Development ) specifies that a separate car parking entrance is to be provided to separate residential and non-residential use parking facilities All servicing for the site such as deliveries, servicing and waste management must be able to be undertaken on-site and underground to minimise impacts on the public realm Cycle parking facilities shall be provided on-site to meet Westminster City Council standards in accordance with the requirements contained in the UDP Policy Trans 10: Cycle parking standards and Appendix 4.2: parking Standards Matrix, 2. Cycle Parking Standards. These facilities shall be designed in such a way to ensure they cannot be used by motor vehicles or motor bikes. Highway improvements 6.14 The City Council will consider proposals to improve the public highway in Victoria Street or other streets adjacent to the draft planning brief site. Any proposals to reduce highway capacity will need to be carefully justified using detailed traffic modelling and assessment of impacts on bus services of the potential impact on the surrounding road network and justified against City Council policy As pedestrian flows are very high on Victoria Street, there is the presumption against reducing existing footway width (kerb to building line). Any proposals to alter footway widths will need to be carefully justified using detailed pedestrian modelling. The City Council will require footway widths to accommodate existing and future pedestrian footfall. There will be a presumption against the temporary placement of tables and chairs on Victoria Street in order to maximise footway capacity Proposals to improve the public highway by tree planting will require detailed justification with reference to the City Council s emerging Tree Strategy, historic precedent in Victoria Street, visibility / motor vehicle safety and pedestrian safety. Victoria Area Transport Schemes 6.17 The Adopted Victoria Area Planning Brief outlines a specific transport implementation scheme in the Victoria Station Area, Victoria Area Transport Schemes (VATS) which is managed by the Victoria Stations Review Group (VSRG). VATS has the purpose of addressing public transport requirements at Victoria Station and street level motor vehicle traffic and parking. 27

29 Victoria Stations Review Group (VSRG) 6.18 The VSRG has been put forward by the City Council as an implementation mechanism for transportation requirements in the Victoria Station area. The transportation requirements which will be considered as part of VSRG are outlined in Chapter 7 of the Victoria Area Planning Brief. The VSRG constitutes a Steering Group comprising representatives from the City Council, the Greater London Authority, Transport for London and specific developers. The Steering Group was established in December The purpose of the Steering Group is fourfold: a) Maintain a list of transportation projects of various sizes to be undertaken in the short, medium and long term. b) Taking into account the extent to which particular developments directly address identified transport proposals at Victoria, consider the amount of financial contribution or in kind benefit appropriate for specific development proposals. c) To consider which transport improvements should be funded by financial contributions from each development. d) Consider how and when contributions should be spent The VSRG will also provide a forum for discussion about projects, programmes and priorities and will inform the planning application process. However, the City Council and GLA will retain all Statutory Planning Powers, making planning decisions and probity The City Council will be paid and hold any financial contributions collected towards the Victoria Area Transport Schemes consistent with their section 106 powers. Accordingly, the City Council will be responsible for monitoring the expenditure of the contributions and will have final say over issues of probity. The City Council will also monitor the in kind benefits provided as part of development proposals to ensure that the section 106 obligations are met. Victoria Area Traffic and Environmental Management Schemes (VATEMS) 6.22 VATEMS seeks to improve the public realm and street environment in the area surrounding Victoria Station by primarily addressing traffic and parking matters. It is expected that the site specific programmes will be developed and priority will be given to schemes which are linked to VSRG or Conservation Area Audits. In both cases schemes will be expected to adhere to the approach set out in Westminster Way City of Westminster Street Design Manual Examples of the types of actions which will concern VATEMS are: a) Agree and implement an incremental de cluttering strategy for the public realm. 28

30 b) Review all parking, loading, bus stop and stand provision. c) Review traffic / pedestrian signing strategies and signs. d) Review all street lighting. e) Review traffic signal timings for vehicles and pedestrians and provision of pedestrian crossings on Victoria Street, Buckingham Gate and Palace Street. 29

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32 7.0 Public realm and management Public Realm Improvements 7.1 New development on the draft planning brief site will be required to make provision for environmental improvements such as improved pedestrian facilities, street furniture, and improved street lighting. Any new hard or soft landscaping works should be carefully designed, using traditional materials, and be of high quality. 7.2 Developers should refer to Westminster City Council s emerging guidance on street furniture The Westminster Way (draft 2004). This document establishes principles for the design, location of street furniture and hard surface materials in the public realm which are appropriate to the city. The document is currently being applied as a design guide but will be re-issued to form part of a wider public realm strategy. Any proposals for public realm / access to the site will be required to conform with the principles contained in this emerging guidance. 7.3 Development proposals will be required to create a useable and enjoyable public realm which is well used and valued by users. Accordingly, public realm proposals for the site must be accompanied by a thorough analysis of the proposal including sun / daylight exposure, micro-climate, overshadowing impacts, and demonstrate avoidance of wind tunnels or overshadowing in order for the City Council to fully understand the benefits and drawbacks of proposals and to enable a sound basis on which negotiate improved solutions. 7.4 The City Council will expect high quality public realm improvements to be undertaken in the vicinity of the site including Palace Street, Buckingham Gate, Victoria Street, Cathedral Piazza and Howick Place to improve public realm amenity. Pedestrian routes 7.5 The City Council will require the provision of well designed public space within the site to be served by improved pedestrian access through the site. Such open spaces should be meaningful, wide, linear and coherent linkages through the site which should, where possible, ensure unobscured views through the site. The redevelopment of all or part of this draft planning brief site provides a significant opportunity to link it to the Cardinal Place development and the emerging Bressenden Place (Victoria Transport Interchange) development proposal to the west, but also to consider indicative potential linkages to the east of Buckingham Gate. 7.6 There will be a requirement that before any redevelopment proposal is formulated, the prospective applicant should commission a thorough study to assess existing and proposed pedestrian desire lines through 31

33 and around the site. Existing pedestrian desire lines should be identified and accommodated, opportunities should also be sought to create new pedestrian access through the site with consideration to the requirements of this draft planning brief and the analysis of the study. 7.7 With regard to Potential Development Site A, the City Council considers it desirable to better use the existing pedestrian link through Seaforth Place to provide a clear connection to Victoria Street. A new pedestrian link should visually connect with Wilcox Place (which is currently pedestrianised). The junction between this link to Wilcox Place and Seaforth Place should take the form of a generous pedestrian open space to encourage legibility and visual connection between Buckingham Gate and Victoria Street. This would provide an improved pedestrian link to Buckingham Gate and to St James s Park London Underground Station on Palmer Street. 7.8 There is also scope to connect the existing pedestrian routes from surrounding recent redevelopment, for example Cardinal Place crossing Buckingham Street. In addition a secondary route running parallel to Victoria Street along the line of the existing Spenser Street and the rear servicing street appears desirable especially if it links up with Butler Place revealing views of the mature trees of Brewer s Green. This route could be connected to Victoria Street by two or three pedestrian routes along the Victoria Street frontage which may assist in addressing the unbroken monotony and impermeability of the existing Victoria Street frontage formed by Kingsgate and Selborne House. 7.9 The City Council will expect that the location and types of ground floor frontages helps to stimulate public realm activity by providing meaningful land use proposals, including appropriate social and community uses The ongoing management of the public pedestrian routes and open space on the site will be critical for the ongoing success of these areas. Ongoing cleansing, security and maintenance will need to be addressed as part of the planning application process. The City Council will require that a section 106 agreement will document the use and management of the space and secure public access at the site. Public Art 7.11 Public art can play a valuable role in enhancing the fabric of the physical environment and in promoting the cultural image of the city. Policy DES 7(A) of the UDP encourages the provision of suitable public art in development schemes and Westminster City Council s booklet, Public Art in Westminster (1994), should be referred to for guidance. Works of public art should be integrated properly into the architectual design of the public facades of new buildings. Accordingly, architects and artists are encouraged to work together from the start of any project. Works of public art may include decorative stone, metal, brick or terracotta work. Free-standing statues or sculptures are unlikely to 32

34 be appropriate, unless they form an integral part of any new public space. Westminster City Council s Public Art Advisory Panel should be consulted on the commissioning and use of public art A memorial to the Queen s Silver Jubilee presented by the British Property Federation is located on the public footway in Victoria Street outside Selborne House. The memorial comprises seven brick planter boxes with public seating. It is highly likely that this memorial will need to be removed (and possibly relocated in part or full) when redevelopment of the site occurs. This could take the form of the relocation of the plaque only, or the relocation of the all or part of the planters and seating in a different position on the development site. The developer is advised consult the British Property Federation to obtain their agreement for the removal and/or relocation of the memorial. 33

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36 8.0 Design and conservation Introduction 8.1 Owing to the size and prominent location of the site, the City Council will expect to receive a redevelopment proposal for a well-resolved, high quality architectural design for both the building design and any open space on the site. Retention / demolition of existing buildings 8.2 Most of the buildings on site are considered to be of little historic and townscape interest. The exception are the Victorian parts of Westminster City School (51-57 Palace Street). Not withstanding their merit, a case could be made for the replacement of the school buildings by a redevelopment scheme of exceptional quality. Other exceptions are Nos 56 and No 58 Buckingham Gate which contribute positively to the surrounding townscape and in particular to the setting of the adjacent listed Blewcoat School building. The loss of these buildings unless replaced by buildings of a higher architectural quality is likely to be contentious. Site Layout 8.3 At the present time, Spenser Street is effectively used as a service road and access to off-street car parking facilities at Selborne House and the Westminster City Hall building. This means that on Development Parcel A, pedestrian access through the site is either unclear or is shared with motor vehicle use. For example on Spenser Street the underground car park entrance and roadway diminishes the quality of the pedestrian experience when crossing the site between Victoria Street to Buckingham Gate via Seaforth Place. The new site plan should seek to separate pedestrian access from motor vehicle access to the site. Spenser Street (from Buckingham Gate) Spenser Street looking towards the rear of Selborne House (50 Victoria Street in background) 35