great ormond street hospital report by 7109PKv

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									                                                       planning report PDU/1473/01
                                                                                3 July 2007

                     Great Ormond Street Hospital, WC1
                                                   in the London Borough of Camden
                                              planning application no. 2007/2049/P


Strategic planning application stage 1 referral
Town & Country Planning Act 1990 (as amended); Greater London Authority Act 1999;
Town & Country Planning (Mayor of London) Order 2000

The proposal
Phase 2 of the redevelopment and refurbishment of Great Ormond Street Hospital, including
the demolition and redevelopment of the existing Nurses’ Home Annex, Barrie Wing and
Southwood ‘A’ wing for a new hospital clinical building and the partial demolition (top four
storeys) and refurbishment of the cardiac wing and the construction of an associated 7-storey
extension.

The applicant
The applicant is Great Ormond Street Hospital for Children NHS Trust, and the architect
is Llewelyn Davies Yeang.

Strategic issues
The proposal is consistent with strategic health policy and promotes London as a centre of
medical excellence. The architecture and urban design is well resolved, enhances the locality
and avoids detrimental impacts on strategic views to St. Paul’s Cathedral. The transport
proposals are satisfactory as are the approaches to ambient noise and built heritage. The
approach to ensuring sustainable development is acceptable subject to the provision of
satisfactory further information as requested and the securing of all proposals by planning
condition or Section 106 agreement.

Recommendation
That Camden Council be advised that the proposal is acceptable in strategic planning terms
subject to the satisfactory provision of further information as requested below and the
implementation of proposed measures being secured via planning condition or Section 106
agreement as required by this report.

Context
1      On 29 May 2007 Camden Council consulted the Mayor of London on a proposal to
develop the above site for the above uses. Under the provisions of the Town & Country
Planning (Mayor of London) Order 2000 the Mayor has the same opportunity as other
statutory consultees to comment on the proposal. This report sets out information for the
Mayor’s use in deciding what comments to make.


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2     The application is referable under Categories 1B and 1C of the Schedule of the Order
2000:

      1B “Development which comprises the erection of a building or buildings…in Central
       London (other than the City of London) and with a total floorspace of more than 20,000
       square metres,”.

      1C “Development which comprises or includes the erection of a building in respect of which
       one or more of the following conditions is met…the building is more than 30 metres high and
       outside the City of London”.

3      If Camden Council subsequently decides that it is minded to grant planning permission,
it must first allow the Mayor an opportunity to decide whether to direct the Council to refuse
permission.

4      The Mayor of London’s comments on this case will be made available on the GLA
website www.london.gov.uk.

Site description
5 The application site forms part of the Great Ormond Street Hospital site, formed by Great
Ormond Street to the south, Lamb’s Conduit Street and Guilford Place to the east, Guilford
Street to the North and Powis Place to the west.

6 The Great Ormond Street Hospital site is situated adjacent to and is partially within the
Bloomsbury Conservation area. The character and appearance of the area is mixed but largely
derives from its Georgian planning features and the extensive survival of buildings from that
period although these are now interspersed with 19th and 20th century institutional buildings.

7 The main entrance to the Great Ormond Street Hospital campus is off Great Ormond
Street itself. The campus is made up of a series of individual buildings that are interlinked by a
network of circulation routes. Principal amongst these is the east-west spine known as the
Hospital Street, which runs parallel to Great Ormond Street roughly in the centre of the site
and links the key functional areas. The spaces between individual buildings are to a large
degree, residual spaces, that are low quality and of little value to staff and patients.

Details of the proposal
8      The application is submitted as part of Great Ormond Street Hospital for Children NHS
Trust’s ongoing programme to update existing facilities at the Hospital and deliver improved
care. This programme is being delivered through four phases of development spanning around
20 years. Phase 1 of the programme has already been implemented with the completion of
Weston House Patient Hotel on Great Ormond Street (Phase 1A) and the Octav Botnar Wing
on the corner of Lamb’s Conduit Street and Great Ormond Street and the partial fit out of the
Royal London Homeopathic Hospital (Phase 1B).

9       This application is for Phase 2 of the improvement programme. This will replace and
expand the inpatient, day care, operating theatres and interventional imaging facilities and
deliver a total of approximately 31,700 sq.m. (gross internal area) of new floorspace, which is
an increase of approximately 13,700 sq.m. (gross internal area) on the existing floorspace.
Phase 2 is divided into two parts:


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      Phase 2A will provide a New Clinical Building of approximately 18,500 sq.m., following
       the demolition of The Barrie Wing, Southwood ‘A’ Wing and the Main Nurses Home
       Annex. It should be noted that the Main Nurses Home Annex no longer provides
       accommodation for hospital staff. It previously provided ‘On-Call’ accommodation for
       staff but this working practice has since been abolished in the NHS due to the 2004
       European Union working Directives and the related accommodation is no longer
       required. The application is supported by the Trust’s Housing Strategy which sets out
       their approach to meeting the housing needs of their staff and in respect of Phase 2
       states that there is no loss of permanent or temporary affordable housing as a result of
       the application.

      Phase 2B will provide a New Cardiac Wing. It will include the demolition and
       reconstruction of the top four floors of the existing Cardiac Wing, so that the floor
       plates horizontally align with the Hospital Street and other buildings on the Hospital
       campus. A new 7-storey building extension to the south of the existing building is also
       proposed, together with a complete refurbishment of the existing building for clinical
       occupation to provide a building of approximately 13,200 sq.m.

10     It is anticipated that Phase 2A will be completed by the end of August 2011 and Phase
2B will be completed by December 2014.

Case history
11     There is no relevant case history. The scheme was presented to the Mayor at his
Planning & SDS Meeting on 15 March 2007.

Strategic planning issues and relevant policies and guidance
12      The relevant issues and corresponding policies are as follows:

    Health                       London Plan
    Urban design                 London Plan; PPS1
    Historic Environment         London Plan; PPG15
    Access                       London Plan; PPS1; Accessible London: achieving an inclusive
                                  environment SPG; Planning and Access for Disabled People: a
                                  good practice guide (ODPM)
 Strategic views                 London Plan; RPG3A, draft View Management Framework SPG
 Transport                       London Plan; the Mayor’s Transport Strategy; PPG13;
 Sustainable development         London Plan; PPS1, PPS3; PPG13; PPS22; the Mayor’s Energy
                                  Strategy; Sustainable Design and Construction SPG
 Ambient noise                   London Plan; the Mayor’s Ambient Noise Strategy; PPG24
 Built Heritage                  London Plan; PPG16


13     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 2006 Camden Unitary Development Plan and
the 2004 London Plan (with 2006 Alterations).

14      The following is also a relevant material consideration:



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      The Further Alterations to the London Plan, which have undergone public
       consultation.




Health
15      The London Plan recognises and promotes London as a national and international
centre of medical excellence and specialised facilities. London Plan Policies 3A.17, 3A.18 and
3A.19 require development plan policies to promote the objectives and modernisation
programmes of Primary Care Trusts, support the provision of additional healthcare facilities
and more generally the continued role of London as a centre of medical excellence. The
proposed redevelopment and enhancement of clinical facilities as part of a comprehensive
modernisation programme at Great Ormond Street Hospital, one of London’s most renowned
specialist hospitals, is therefore strongly supported by the Mayor.

Urban design, historic environment, access and strategic views
16     London Plan Policy 4B.1 sets out a series of design principles to be used in assessing
planning applications. The proposed design compares favourably with these principles and
successfully responds to the constraints of the site and architectural brief.

17     The greater part of the proposed development is enclosed within the hospital campus.
The exception to this is the northern facade of the new clinical building, which breaks out on to
Guildford Street. This is an important east-west thoroughfare in Bloomsbury that is
characterised by a mix of large institutional buildings. The proposed building reacts to this
with a suitably bold design that contrasts the architecture of the locale whilst drawing on key
references from it in the proportions, rhythm and materials of the facade. The building is
considered to be of an architectural quality appropriate to the historic environment of the
Bloomsbury Conservation Area.

18      Internally the design is generated by clinical organisation requirements and the need to
create a navigable and welcoming environment for patients, staff and visitors. The hierarchy of
spaces created, supported by the interior design and way finding strategies, will achieve this
and create flexible clinical space that will allow the hospital to change and adapt to future
requirements. The access statement for the Phase 2 demonstrates that it will be fully
accessible to all user groups and is integrated into the existing accessible circulation areas.

19     At present the external open space on the Hospital site is extremely limited due to the
density of development on the site. The need for the redevelopment of the site to create better
provision of external open space and landscaping is recognised by the Trust as not all patents
are able to access the off-site open space at adjacent Coram’s Fields and Queen’s Square. The
Phase 2 development presents limited opportunities to improve the open space provision but
does include an external terrace to the restaurant located within a central courtyard and a roof
garden for staff on the new clinical building. These proposals will significantly improve the
existing situation and be complimented by more extensive external open space provision in
Phase 3 of the Hospital’s redevelopment.




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20      The application is supported by analysis of near and far views to the proposed building.
The near views of the frontage of the new clinical building on Guildford Street demonstrate
that this will have a positive impact on the street scene.

21      The site of the proposed building lies within the landmark viewing corridor from
Primrose Hill to St Paul's Cathedral and within the landmark background assessment areas for
the landmark viewing corridors from Blackheath and Greenwich to St Paul's Cathedral.
Policies 4B.15 to 4B.17 of the London Plan and the draft London View Management
Framework Supplementary Planning Guidance (March 2007) set out the Mayor’s approach to
the protection and management of strategically important views. The viewing corridor
calculations, certified photomontages and architectural plans state that the building falls below
the threshold planes for the landmark viewing corridor and both landmark background
assessment areas. The proposal therefore avoids any detrimental impact on views to St Paul’s
Cathedral and is acceptable.

22      In summary the proposed design of the scheme is consistent with strategic policy and
will create new clinical facilities that are functional, resilient and architecturally stimulating for
patients, staff and visitors.

Transport
23      The Hospital site is bounded by Guildford Street to the North, Lamb’s Conduit Street
to the East, Great Ormond Street to the South and Queen’s Square to the West. The nearest
section of the Transport for London Road Network (TLRN) is Farringdon Road, 600 metres to
the East, with the Strategic Road Network (SRN) lying 300 metres to the West at Russell
Square. The site is within 400 metres of 7 bus routes (Nos. 7, 59, 68, 91, 168, 188 and X68) and
Russell Square Underground station (Piccadilly Line). Kings Cross and Euston mainline
railway stations are 1kilometre to the north of the site. The site’s close proximity to many
public transport services means that it has a Pubic Transport Accessibility Level of six (out of
six, where six is very high).

24      The number of hospital staff is not proposed to increase as a result of the development
as staff will be relocated from other accommodation within the site. Consequently the number
of additional trips generated by the proposed development will be minimal. Furthermore,
hospital peak travel hours do not coincide with standard commuter peak travel periods and
therefore Transport for London is not concerned regarding the impact of the proposed
development on the wider highway or public transport networks. Transport for London does
not require any Section 106 contributions towards the upgrading of bus stops in the vicinity as
all are of good quality and accessibility.

25     Off-site car parking for both staff and visitors is provided at the Bloomsbury Square
NCP Car Park. The development does not propose any additional on or off site parking spaces
and the proposals are unlikely to increase the level of car use substantially. It is proposed that
the level of cycle parking on the Hospital site is increased from 128 to 269 spaces (an additional
141 spaces) in this phase. This increase is welcomed and is consistent with Transport for
London cycle parking standards.

26     The application provides for a new staff entrance on Guildford Street. This has the
potential to redirect a number of pedestrian trips away from Great Ormond Street itself,
improving the overall permeability of the hospital. Although this is supported, the
enhancement of pedestrian safety measures along Guildford Street is encouraged.



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27     Transport for London welcomes the applicant’s provision of a travel plan. Although
Transport for London can provide further advice on its implementation, it is noted that Great
Ormond Street Hospital has an existing travel plan that has been in place since 2003. Overall,
any travel plan should contain realistic and achievable targets in order to encourage more
sustainable trips to and from the site. The proposed travel plan should be secured, enforced,
monitored and reviewed though the Section 106 agreement. It should clearly articulate the
target mode share and trip rates for the site over time and explain how commitment to the
supporting initiatives and measures are expected to deliver these targets.

Sustainable development
28      The London Plan promotes a holistic approach to sustainable development and contains
a number of specific policy requirements aimed at ensuring the sustainability of new
development. Policy 4B.6 requires developments to meet the highest standards of sustainable
design and construction and energy policies 4A.7 to 4A.9 seek to reduce carbon emissions by
requiring the incorporation of energy efficient design and technologies, and renewable energy
technologies where feasible. The London Plan Sustainable Design and Construction
Supplementary Planning Guidance supports and expands on these policies. The draft further
alterations to the London Plan require developments to make the fullest contribution tackling
climate change by minimising carbon dioxide, adopting sustainable design and construction
and prioritising decentralised energy including renewables.

29     The proposals incorporate a range of measures in response to the sustainable design and
construction policies outlined above. These include:

      The provision of operational waste recycling facilities and construction waste recycling.

      The use of modern methods of construction and preference for locally sourced and
       certified or ‘A’ rated materials (as described in the Building Research Establishment’s
       green guide to specification) for all major building elements.

      The use of energy efficient appliances and lighting wherever possible.

      The use of water efficient appliances, low and medium temperature hot water systems,
       rainwater harvesting for plant watering and sedum roofs.

30    These measures are welcomed and fully supported by strategic planning policy. The
implementation of all measures should be secured by robust planning conditions.

31     Regarding energy, the applicant has held extensive pre-application discussions with
GLA officers to ensure that the energy proposals deliver the lowest possible carbon dioxide
emissions in the context of the scheme. The applicant has committed to a power, heating and
cooling network for Phases 2A and 2B, incorporating two 1.2 MegaWatt Combined Heat and
Power engines in Phase 2A and a third engine in Phase 2B, along with absorption chillers to
provide cooling (CCHP).

32      This represents a significant and welcome commitment by Great Ormond Street
Hospital. Additional costs have been incurred to link the system to a substation as the nearest
suitable substation would require upgrading to allow connection. The commitment to
substantial carbon dioxide reductions is welcome in principle, but clarification is required in
respect of:


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    How the scheme will relate to minimum targets for building regulations 2006.

    Whether the heating and the cooling network will be a unique common network at the
     end of Phase 2 and whether it is planned to design the network to allow for extension in
     later phases.

    How the potential accessibility problems for maintenance have been addressed given the
     location of the plant.

33     Given the phased nature of the development and the uncertainty over the provision and
content of the biofuel this commitment must be secured through clauses in the Section 106
agreement for the application.

34     The scheme should result in significantly lower carbon dioxide emissions than a
hospital built to building regulations requirements and, subject to a satisfactorily worded
Section 106 agreement, is consistent with current London Plan policy and supports the
objectives and targets in the draft Further Alterations to the London Plan.

35     A further consideration is the potential for an area wide network in conjunction with
other relevant parties in the area. Great Ormond Street Hospital is located between the
proposed district cooling, heating and power systems at Kings Cross and University College
London. The GLA is keen to work with Camden Council, the three land owners and other
relevant parties to explore the potential to develop a heating and cooling network to serve
existing buildings between these sites to further support the draft Further Alterations to the
London Plan and the Mayor's Climate Change Action Plan.

36      In summary the proposals are acceptable subject to the satisfactory resolution of the
issues above and the securing of the implementation of all proposed measures via planning
condition and Section 106 agreement as set out above.

Ambient Noise
37     London Plan Policy 4A.14 and the London Ambient Noise Strategy set out the Mayor’s
approach to managing and reducing ambient noise arising from developments. The application
is accompanied by an acoustic survey report that states that mitigating measures can be
introduced to achieve acceptable internal noise levels (those affecting the operation of the
hospital) and external noise impacts (those affecting other sensitive sites). This approach is
consistent with the above policy. The Council should attach conditions to any planning
consent to ensure these standards are met.

Built Heritage
38     London Plan Policy 4B.14 states that the Mayor will support the identification,
protection, interpretation and presentation of London’s archaeological resources. The
application is accompanied by an archaeological report from Museum of London
Archaeological Services, which identifies the potential for medieval and post-medieval deposits
on the site and sets out an appropriate mitigation strategy. This approach is consistent with
the above policy.

London Development Agency’s comments



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39     The London Development Agency welcomes the proposal to improve the facilities at
the Great Ormond Street Hospital. London Plan policies, particularly 3A.17, support the
delivery of quality health care facilities and the modernisation of existing hospitals. London's
health service is vital to maintaining London as an exemplary sustainable world city.

40     The Health care sector is also one of the capital's major employers. It is important that
the benefits of this development are maximised for local residents and business in accordance
with London Plan policy 3B.12. The agreement of the applicant to accept referrals from Kings
Cross Working to employ local construction workers is welcomed. This is a major project that
which will be phased over more than a decade and so the Borough should also consider
requesting a financial contribution towards training to ensure that sufficient local skilled
workers are provided by Kings Cross Working. The Borough should consider if the benefits of
the development for local people and businesses, particularly the supply of goods and services
and sub-contracting, should be considered within the Section 106.




Local planning authority’s position
41      It is understood that the Camden Council will be considering the application on 5 July
2006 and that it is likely to be recommended for approval subject to conditions and the signing
of the Section 106 agreement.

Legal considerations
42      Under the arrangements set out in article 3 of the Town and Country Planning (Mayor
of London) Order 2000 the Mayor has an opportunity to make representations to Camden
Council at this stage. If Camden Council subsequently resolves to grant planning permission,
it must allow the Mayor an opportunity to decide whether to direct it to refuse planning
permission. There is no obligation at this present stage for the Mayor to indicate his
intentions regarding a possible direction, and no such decision should be inferred from the
Mayor’s comments unless specifically stated.

Financial considerations
43     There are no financial considerations at this stage.

Conclusion
44      The redevelopment of part of the Great Ormond Street Hospital site to provide
improved clinical facilities as part of the Hospital’s comprehensive modernisation programme is
strongly supported by the Mayor. The proposed scheme is generally consistent with strategic
planning policy but further information is required regarding aspects of the energy proposals
and this should be provided to the satisfaction of GLA officers prior to the scheme being
referred back to the Mayor. The implementation of the energy proposals must be secured by a
Section 106 agreement, the wording of which should be to the satisfaction of GLA officers.
The implementation of the proposed sustainable design and construction measures and all
other relevant components of application cited above should be secured by planning condition
or included with the Section 106 agreement as appropriate.



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for further information, contact Planning Decisions Unit:
Giles Dolphin, Head of Planning Decisions
020 7983 4271 email giles.dolphin@london.gov.uk
Colin Wilson, Strategic Planning Manager (Development Decisions)
020 7983 4783 email colin.wilson@london.gov.uk
David Watkinson, Strategic Planner / Urban Designer (Case Officer)
020 7983 4493 email david.watkinson@london.gov.uk




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