70A 84 to 90B fulham high st report by CRFe4IU


									                                      planning report PDU/1818a,1818b,1818c/01
                                                                           14 January 2009

                           70A & 84-90B Fulham High Street
                              in the London Borough of Hammersmith & Fulham
                             planning application nos. 2008/03511 & 03519 FUL,
                          2008/03514 & 03520 CAC, 2008/03515 & 03521/LBC

 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
 Redevelopment of the site to provide a supermarket on ground floor and 52 residential units
 above (second to sixth floors); erection of a part two, part three storey replacement church
 hall building and 3 residential units above; 180 car parking spaces together with related
 servicing arrangements and landscaping. The proposal incorporates the submission of
 duplicate planning applications relating to mix use redevelopment of the site in conjunction
 with Conservation Area and Listed Building Consent.

 The applicant
 The applicants are Barton Finch (Fulham) Limited and TESCO Stores Limited, and the
 architects are Collado Collins Architects & Master Planners.

 Strategic issues
 The maximum reasonable amount of affordable housing needs to be verified; children’s
 play space needs to be revisited. The retail assessment is acceptable. Concerns in relation to
 the urban design need to be addressed. The access arrangement is acceptable. The energy
 strategy needs to be clarified. Transport & parking need to be addressed in line with the
 London Plan policies. Employment & training strategy needs to be submitted.


 That Hammersmith & Fulham Council be advised that the application does not comply with
 the London Plan, for the reasons set out in paragraph 79 of this report; but that the possible
 remedies set out in paragraph 81 of this report could address these deficiencies.

1      On 5 December 2008 the Mayor of London received documents from Hammersmith &
Fulham Council notifying him of a planning application of potential strategic importance to
develop the above site for the above uses. Under the provisions of The Town & Country
Planning (Mayor of London) Order 2008 the Mayor has until 15 January 2009 to provide the
Council with a statement setting out whether he considers that the application complies with

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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

2       The application is referable under Category 3E (1) of the Schedule to the Order 2008:
”Development – (a) which does not accord with one or more provisions of the development plan …; and
(b) comprises or includes the provision of more than 2,500 square metres of floorspace for a use falling
within any of the following classes in the Use Classes Order – (i) class A1 (retail)…”

3      Once Hammersmith & Fulham Council has resolved to determine the application, it is
required to refer it back to the Mayor for his decision as to whether to direct refusal; take it
over for his own determination; or allow the Council to determine it itself.

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

Site description
5       The application site extends to 0.69 hectares and is located just north of Putney Bridge.
It is bounded by Parkview Court to the north, the A219 Fulham High Street to the east, The
Temperance public house to the south and the properties of Church Gate and Steeple Close
together with All Saints Vicarage to the west with Fulham Palace grounds and the allotments

6      The site currently has several points of access off Fulham High Street. The southern
entrances provide access to the cars sales forecourt with the entrance north of this between the
two gatehouses giving access to the buildings to the rear. Two points further north access the
Wharf Study Centre with the most northern entrance serving the Vicarage, the Church Hall
and the rear of Parkview Court.

7       The majority of the frontage to Fulham High Street is taken up by vacant space or by
the display of second hand cars associated with Fulham Auto Sales, located at the southern end
of the site. The car sales and garage buildings comprise a mix of poor quality, piecemeal units
with the forecourt inappropriately opening up the street space. Immediately adjacent to the car
sales area lie the two Territorial Army Pavilion buildings at no. 86, also referred to as the
‘gatehouses’, that lead to the former Drill Hall and Riding School to the rear. The Council
locally listed the gatehouses, dating from the start of the 20th Century, in 1989 as Buildings of

Details of the proposal
8      The applicant has submitted a set of duplicate applications. The application is for
planning permission for the: “Redevelopment of the site to provide a 4,073 sq.m. gross
supermarket (1,622 sq.m. net) and a 17 sq.m. gross glazed kiosk (Class A1), 55 residential units
(Class C3), a 618 sq.m. replacement church hall (Class D1), alterations to the access onto
Fulham High Street and associated parking and landscaping.”

9      The application for listed building consent is for the: “Demolition of no. 90b Fulham
High Street that falls within the curtilage of The Temperance public house (Grade II listed)
and the enclosure of a glazed retail kiosk unit in its place.”

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10     The application for conservation area consent is for the: “Demolition of all buildings
within the application site boundary (with the exception of the front section of the former
Territorial Army gatehouses). The site falls within the Bishops Park Conservation Area.”

Case history
11       The main part of the application site, excluding the land to the rear with the church
hall, already benefits from a planning permission for its redevelopment. Planning permission
was originally granted on 2002 for: “Refurbishment of the two (former Territorial Army) “lodge”
buildings on the Fulham High Street frontage and redevelopment of the remainder of the site by the
erection of various buildings, between 2 and 6 storeys (northern end of site on Fulham High Street
frontage) in scale, to provide a mix of residential (46 units of which 28 or 61% are affordable), offices
(1,054 sq.m.), retail and/or professional services (295 sq.m.) and a restaurant (403 sq.m.), together with
associated car parking (53 spaces) at basement level, formation of a pedestrian gate into the garden wall
with 5 Church Gate, and a landscaping and planting scheme.”

12    Amendments were then sought and granted and the time period within which to
implement the permission was then extended and granted on 16 November 2006.

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

 Retail                             London Plan; PPS6; PPG13
 Affordable housing                 London Plan; PPS3; Housing SPG
 Children’s playspace               London Plan; Children and Young People’s Play and Informal
                                     Recreation SPG
 Urban design                       London Plan; PPS1
 Access                             London Plan; PPS1; Accessible London: achieving an inclusive
                                     environment SPG; Wheelchair Accessible Housing BPG; Planning
                                     and Access for Disabled People: a good practice guide (ODPM)
 Sustainable development            London Plan; PPS1, PPS Planning and Climate Change
                                     Supplement to PPS1; PPS3; PPG13; PPS22; the Mayor’s Energy
                                     Strategy; Sustainable Design and Construction SPG
 Transport                          London Plan; the Mayor’s Transport Strategy; PPG13; Land for
                                     Transport Functions SPG
 Parking                            London Plan; the Mayor’s Transport Strategy; PPG13

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 Hammersmith & Fulham Unitary
Development Plan (adopted 2003) and the London Plan (Consolidated with Alterations since

15       The retail sector plays an important role in London’s economy. It also helps to
facilitate entry into the labour market for people with few qualifications and those seeking
flexible employment opportunities. There are some areas within London, which are not as
well served by retail as the majority of areas, and the GLA’s recent analysis titled Retail in

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London1 suggests that retail could act as a significant regenerating influence in some areas
of London. The analysis points out that the decline in retail within small town centres that
have lost out to both large town centres and out-of-centre retail is one of the key reasons
for the changes in the location and structure of the retail sector. Competition from new and
existing developments, and from internet shopping will mean that some town centres in
London are likely to see a decline in the attractiveness of their retail offer relative to other
town centres over the next decade or so.

16      Having said that, the study emphasises that the general outlook for London’s town
centres is extremely positive and stresses that they should benefit from rising consumer
spending on retail and the support of planning policy that encourages new retail
development into existing town centre locations. The combination of these two factors
should ensure that most London town centres are able to continue to expand and enhance
their retail offer over the next decade.

17      PPS 6 (Planning for Town Centres) seeks to promote and enhance the vitality and
viability of town centres and states that town centres should be the preferred locations for
development that attracts many trips. The Statement seeks to improve consumers’ choice
by providing a wide range of shopping, leisure and local services for the whole community,
to promote high quality design and make efficient use of land in town centres to deliver
more sustainable development. Policy 3D.1 – 3D.3 of the London Plan set out over-arching
approaches to support and regenerate town centres, particularly based on local retail

18      The UDP shows that this site is adjacent to a shopping parade. The Core Strategy
Preferred Options seeks to redefine the shopping parade as a Key Local Centre, but still
excludes this site, whereas the West London Retail Needs Study includes the site within
the defined centre boundary. The applicant has set out reasons why the site should be
included in the Town Centre. Based on the information supplied there is merit to this
argument, although clearly this needs to be pursued through the LDF process.

19      Given its current out-of-centre status the applicant has provided a comprehensive
retail impact assessment including a sequential test analysis in accordance to PPS6. This
assessment sets the context for the provision of a 1,622 sq.m. (net retail floorspace) Tesco
foodstore on the application site. It defines the catchment area for the proposed store based
on the study zones for the West London Retail Needs Study produced by GVA Grimley in
2006 to enable a comprehensive appraisal of food shopping patterns and expenditure flows.
This demonstrates both a clear quantitative and qualitative need for the proposed
supermarket. The applicant states that the benefits of the proposed retail development are
summarised below:

       It will anchor Fulham High Street’s currently limited convenience goods offer and
help to revitalise the centre through linked trips to existing shops, businesses and facilities.
This will, in turn, enable the centre to perform its emerging role as a Key Local Centre in
the Borough’s shopping hierarchy.

   Matthew Waite, Senior Economist Richard Prothero, Economist – Retail in London -London’s Economy Today
I Issue 50 - [http://www.london.gov.uk/mayor/economic_unit/docs londons

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       Enhance the vitality and viability of the local area, which the majority of local
residents consider has declined in recent years. It encourages a more sustainable pattern of
shopping by providing more attractive convenience shopping facilities within Fulham High

20      Subject to the views of the Council, the retail assessment would suggest that a case can
be made for a store of this size in this location, particularly given the potential change to the
status of the centre and this site.

Affordable housing
21      London Plan Policy 3A.10 requires borough councils to seek the maximum reasonable
amount of affordable housing when negotiating on individual private residential and mix-use
schemes. In doing so, each council should have regard to its own overall target for the amount
of affordable housing provision. Policy 3A.9 states that such targets should be based on an
assessment of regional and local housing need and a realistic assessment of supply, and should
take account of the London Plan strategic target that 35% of housing should be social and 15%
intermediate provision, and of the promotion of mixed and balanced communities. In addition,
Policy 3A.10 encourages councils to have regard to the need to encourage rather than restrain
residential development, and to the individual circumstances of the site. Targets should be
applied flexibly, taking account of individual site costs, the availability of public subsidy and
other scheme requirements.

22      Policy 3A.10 is supported by paragraph 3.52, which urges borough councils to take
account of economic viability when estimating the appropriate amount of affordable provision.
The ‘Three Dragons’ development control toolkit is recommended for this purpose. The
results of a toolkit appraisal might need to be independently verified

23     Where borough councils have not yet set overall targets as required by Policy 3A.9,
they should have regard to the overall London Plan targets. It may be appropriate to consider
emerging policies, but the weight that can be attached to these will depend on the extent to
which they have been consulted on or tested by public examination.

24      The application proposes residential use on the upper floors above the commercial uses,
resulting in 52 units above the foodstore and 3 units above the Church Hall. 55 residential
units are thus proposed on the application site, although it should be noted that this represents
a net gain of 54 as there is one flat above the Church Hall as existing. The extant planning
permission provided for 46 residential units on the application site with this application seeking
a larger number.

25     As shown in the Table below, of the 55 units now proposed, 13 are proposed of
affordable tenure with the remaining 42 available of private tenure. Of these 42 private units, 3
are proposed for the All Saints Church. The 13 units of affordable tenure represent a 24%
proportion of the overall unit numbers and a 23% of the overall number of habitable rooms. Of
the 13 affordable units proposed, 7 will be available for social rent and 6 are proposed as of
shared ownership tenure. This represents a 54:46 split between social rented and shared
ownership on unit numbers and 59:41 split on habitable rooms.

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26     The applicant is required to justify the proposed level of affordable housing through an
acceptable financial appraisal in order to determine whether this is the maximum reasonable
amount. At this stage the proposal does not comply with policy 3A.10 of the London Plan.

27     In relation to the family housing, though the provision is below the target, it is
understood that the residential accommodation is located within an urban area, above
commercial uses on a constrained and sensitive site; therefore it is considered that it is difficult
to provide additional larger family units with access to private amenity space.

Children’s play space
28     Policy 3D .13 of the London Plan sets out that “the Mayor will and the boroughs should
ensure developments that include housing make provision for play and informal recreation,
based on the expected child population generated by the scheme and an assessment of future
needs.” Using the methodology within the Mayor’s supplementary planning guidance
‘Providing for Children and Young People’s Play and Informal Recreation’ it is anticipated that
there will be approximately 18 children within the development. The guidance sets a
benchmark of 10 sq.m. of useable child playspace to be provided per child, with under-5 child
playspace provided on-site. As such the development should make provision for 180 sq.m. of

29     The applicant proposes that the paddock is to be reinstated and landscaped to include a
variety of hard, soft and terraced areas including a formal area of play. But as this is only for
the Church Hall residents, the applicant needs to make a financial contribution towards
improvements to the nearby park to meet the needs of the over 5’s of the residents above the
store and on-site provision for the under 5’s.

Urban design
30       Good design is central to all objectives of the London Plan and is specifically promoted
by the policies contained within Chapter 4B which address both general design principles and
specific design issues. London Plan Policy 4B.1 sets out a series of overarching design
principles for development in London. In addition to Chapter 4B, London Plan policies relating
to density (3A.3) and sustainable design and construction (4A.3) are relevant. Design polices in
the London Plan include specific design requirements relating to maximising the potential of
sites, the quality of new housing provision, built heritage, views, and the Blue Ribbon Network.

31      The site is currently a ‘gap’ site along Fulham High Street, occupied by a car park and
some under-used and low-scale buildings. The proposal introduces a building that reinstates
the building line along this stretch of Fulham High Street and fills in the gap, resulting in an
overall positive contribution to the wider townscape.

32      The immediate site context (as shown in Figure 1) varies dramatically, ranging from
the busy high street which feeds into to Putney Bridge as it curves around the southern corner
of the site, to MOL and historic parks and gardens to the west of the site, and to the more
residential uses and lower scale to the east and north of the site. Directly north of the site along
Fulham High Street is Parkview Court, a 7-storey mansion block with a very long frontage
along the High Street incorporating retail use at the ground floor. This contrasts with the
more varied elevations and modest plot widths of the buildings along the opposite side of
Fulham High Street, which range in height from two to five storeys.

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33      The proposal (as shown in Figure 2) incorporates a diversity of architecture and form
that reflects the diversity in the surrounding context. The height and massing of the proposal
have been carefully considered and tested to ensure the scheme is not visually intrusive to the
sensitive residential areas and open land to the rear of the site, as well as in views of the listed
All Saints Church and from Putney Bridge. This height and scale has evolved from a previously
consented but unimplemented proposal for the site, and represents a reduction in massing in
several key areas.

34      The scale of the building along Fulham High Street respects and reflects the scale of
Parkview Court whilst ensuring the privacy of the units at the uppermost levels of Parkview
Court is not compromised. The building steps down by one more storey to the south and then
down to a single-storey structure that directly adjoins the listed pub on the corner of the street.
The concentration of the massing along Fulham High Street reinforces the urban edge and
creates a greater sense of enclosure and continuity along the high street, and also functions as a
barrier to the ‘rear’ of the site, where building bulk is much more modest, being two and three
storeys, and much more appropriate to the context of the residential and other buildings
around the open space.

35      Conservation and listed buildings: The local area benefits from many heritage assets,
including two former gatehouses identified as being of ‘townscape merit’ by the Council and
which lie within the site boundary. The site lies within the Bishops Park Conservation Area
and partially within the boundary of the designated ‘scheduled ancient monument’ of Fulham
Palace. The site is also adjacent to several listed houses and a listed former billiards hall (now
pub), as well as the registered historic parks and gardens of Bishops Park and Fulham Palace.

36      The proposal incorporates the facades of the two unlisted gatehouses that are currently
on site, using them as the residential entrances, and introduces a glass and terracotta volume
above to link to the main residential block. The retention of the gatehouses provides an
opportunity to introduce variation in the architectural treatment that echoes the diversity of
buildings on the opposite side of the street. The proposal incorporates a glass volume that rises
above and behind the retained gatehouses that encloses the stairwell and lift shafts for the
residential units. The glass volume is articulated with a series of horizontal terracotta louvres,
which provide shading and privacy to the circulation cores. These louvres compete with the
other elements of the elevations including the retained gatehouse facades. This element adds
texture and complexity that overwhelms the retained facades and is not entirely convincing; a
simpler solution to the stairways and lift cores using a simple glazed volume without the
louvres may be more appropriate. The use of the louvres on this part of the development should
therefore be revisited.

37     Site Layout: The site layout concentrates the highest density development along
Fulham High Street, with the food store occupying the majority of the southern half of the site
and residential uses above. The northern half of the site is behind Parkview Court and adjoins
the Warren Allotment Gardens to the north and west. This part of the site will have a new
church hall and open ‘paddock’ behind adjoining the allotment gardens as private amenity
space for the church hall. It is unfortunate that this green space will not be accessible to the
residents of the development, however it does provide a private play area for the nursery school
and for the residents that live above the hall.

38     Vehicular access will be from Fulham High Street, between Parkview Court and the
residential building. This servicing entrance/exit creates a substantial interruption in the
pavement along Fulham High Street, and contributes to a high proportion of hard standing at
the centre of the site. The vehicular access to the underground car park is through this part of

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the site and underneath the church hall, and this route also provides access to the vicarage to
the west of the site. The applicant intends for this to be a shared surface for pedestrians,
cyclists and cars, and has proposed detailed landscaping features including carefully delineated
pedestrian and vehicular areas and trees.

39      Open Space/Public Realm: In addition to the entrance yard and Paddock to the rear of
the new church hall, the scheme provides for a wider pavement along Fulham High Street as
well as one tree and cycle parking stands. These improvements will enhance the public amenity
along the building frontage and positively contribute to the setting of the conservation area.
The roof to the retail store is a green roof that is not accessible, and the roof of the retail office
to the rear is a brown roof that will enhance the biodiversity on site.

40      The proposal incorporates private amenity space in the form of private balconies for the
residential units that do not face onto Fulham High Street. Those units that face onto the high
street have ‘internal’ balconies due to noise and air pollution concerns; the benefit of these
spaces is not clear as it seems that these are simply larger internal rooms with bay windows.
Alternate provision of private or semi-private amenity space for the units that do not benefit
from balconies should be incorporated, whether on shared rooftop gardens or elsewhere in the

41     Children’s play space does not appear to have been provided within the development.
The green space to the rear of the church school is proposed to be solely accessible to the
church use. There may be opportunities to introduce areas of children’s play either within the
residential portion of the development, or integral to the open space behind the Parkview

42      Internal Layouts: The internal layouts are largely acceptable. The main building
features ten units per core, which is higher than the preferred configuration, although the
proposal incorporates a secondary lift core from the vehicular entrance area, which would
overcome that weakness if it is intended to be in regular use. It is unclear, however, what the
purpose of this second entrance is intended to be – if it is to be used as a regular entrance to the
socially rented residential units, much more should be made of the entrance to ensure it is safe
and legible.

43      The scheme features single-aspect units served off of the main corridors, however the
corridor also benefit from natural daylight penetration from both ends. Whilst approximately
half of the units appear to be single aspect, none are north-facing and many benefit from mid-
day and evening sun to the south and west. Concerns relating to the private amenity provision
for the flats facing Fulham High Street are noted above. The Council should ensure that all
units are sized to ensure generous storage and living space, as the plans provided do not allow
this assessment.

44      In summary, the proposal is largely acceptable in terms of urban design, however
amendments should be sought to address concerns raised above relating to the treatment of the
glazed stair core above the retained gatehouse facades to ensure compliance with London Plan
policies 4B.8, 4B.11 and 4B.12. Further consideration to providing private or shared amenity
space for all residential units to ensure the scheme represents a sustainable form of
development in line with London Plan policy 4B.1.

Inclusive design

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45     The aim of London Plan Policy 4B.5 is to ensure that proposals achieve the highest
standards of accessibility and inclusion (not just the minimum), and this and all developments
should seek to better minimum access requirements. The design and access statement should
therefore explain the design thinking behind the application and demonstrate how the
principles of inclusive design, including the specific access needs of disabled people, have been
integrated into the proposed development and how inclusion will be maintained and managed.

46      The design and access statement demonstrates that care has been taken to ensure that
the proposed retail, community (Church hall) and residential environments have been designed
for use by all members of society, regardless of age or ability. The principles set out in this
statement have ensured that the accessibility of the proposed development has been central to
the development of the scheme. This is welcomed.

47      10% of the new housing proposed will be wheelchair accessible, and 100% of housing
will be built to Lifetime Homes Standards (Joseph Rowntree Foundation), which will ensure
that the proposed development is convenient, safe and accessible. The commitment should be
secured by condition.

48     In relation to the pedestrian access, care has been taken to ensure that all pedestrian
access points are at the same height as the level of access to the cores. Where this is not
possible access ramps have been provided and this is welcomed.

49     In summary, the access arrangement complies with policy 4B.5 of the London Plan.

Climate change mitigation and adaptation
50     The London Plan climate change policies as set out in chapter 4A collectively require
developments to make the fullest contribution to tackling climate change by minimising carbon
dioxide emissions, adopting sustainable design and construction measures, prioritising
decentralised energy supply, and incorporating renewable energy technologies with a target of
20% carbon reductions from on-site renewable energy. The policies set out ways in which
developers must address mitigation of and adaptation to the effects of climate change.

51     Policies 4A.2 to 4A.8 of the London Plan focus on how to mitigate climate change, and
the carbon dioxide reduction targets that are necessary across London to achieve this.

52      The applicant has broadly followed the energy hierarchy set out in Policy 4.A1.The
modelled baseline emissions are 850 Tonnes carbon dioxide per annum. A range of energy
efficient design measures are proposed that reduces emissions by 10% beyond Building
Regulations 2006 although there seems to be further room for reducing the demand for energy
in the residential element before combined heat & power (CHP) and/or renewables are

53     A communal heating network is proposed, although it is not clear that all
buildings/uses on the site will be connected. Heat will be supplied from a 70kWe CHP unit
that will reduce emissions by a further 9%.

54     Finally 40 sq.m.of photovoltaic modules are being proposed reducing carbon dioxide by
a further 0.2%.

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55     Overall, sufficient information has been provided to understand the proposals, although
further details are required in particular areas before the proposals can be considered

56     Suitable building regulations approved software has been used for the calculation of the
baseline emissions and carbon emissions after demand reduction measures. The applicant has
proposed a series of energy efficient design measures. For the domestic element, measures
include low energy lighting and building envelope thermal performance that slightly exceeds
the minimum requirements of Building Regulations 2006. For the non-domestic element
measures include improved lighting efficiency and lighting controls and improved building
envelope thermal performance beyond Building Regulations minimum requirements.

57      With regard to the residential units, the calculations submitted seem to indicate that the
carbon dioxide reductions achieved with the use of demand reduction measures only (before
CHP and renewables) are of 3.6%. From the information provided there seems to be some room
to further improve the building envelope thermal performance, i.e. insulation and air tightness
for the dwellings. The applicant should re-investigate the energy efficiency design measures
proposed with the aim of achieving bigger carbon dioxide savings beyond Building Regulations

58      The GLA is not aware of any district-heating network to which this scheme could
connect. That said, a communal heat network is being proposed but it is not clear which of the
elements of the proposed scheme will be connected to it. In this regard, the applicant is
required to clarify - with an indicative drawing - the extent of the heat network proposed and
the location of the energy centre within the development demonstrating whether it is feasible
to allocate all the required and proposed plant.

59     The applicant proposed that the communal heat network will be partially fired with a 70
kWe gas fired CHP plant and that this would contribute to around 80% of the total site heat
demand. It was also indicated that a 20 sq.m. thermal store would be installed. The applicant is
required to clarify the arrangements that would be put in place for the installation and
operation of the CHP plant and heat network including information regarding the
arrangements for the selling of the CHP generated electricity.

60      In relation to the cooling system, the applicant is required to clarify in more detail the
cooling strategy for the development specifying where active cooling will be required and how
this will be provided.

61      The applicant proposed to install 40 sq.m. of photovoltaic modules in the roof of the
residential dwellings. The applicant argues that no PV can be installed in the roof of the retail
store due to the fact that the architect is proposing a green roof on the roof of the retail store.
However, the applicant is required to clarify, why PV cannot be integrated along with a green
roof on the retail store roof, given the fact that that there is no shading. Also whether or not
more PV could be installed on the roof of the residential block, as there seems more space
adjacent to the proposed.

62     Finally, the applicant is required to clarify whether open loop ground source heat pumps
could be used to contribute to the cooling requirements of the development and the extent to
which this technology could save further carbon emissions.

Transport for London’s comments

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63      The site is located approximately 300 metres north-west of Putney Bridge
Underground station (District Line). The site is well served by buses and is in close proximity
to seven routes (14, 22, 74, 220, 270, 414, 430). A further seven bus routes are accessible from
Putney Bridge Underground station. Correspondingly, the public transport accessibility level
is excellent with a score of 6a (where 1 is very poor and 6, very good).

64      The transport assessment currently does not follow TfL’s Best Practice Guidance
(2006). The assessment uses trip demand surveys that are too old. Similarly, no details have
been provided on the survey sites used for TRICS and whether these include multi-modal
analysis. Without this information TfL cannot fully assess the impact of the development on
public transport services.

65      A total of 180 car parking spaces are proposed, comprising 143 spaces for the
supermarket, 32 spaces for the 55 residential units and 5 spaces for the church hall. The level of
car parking provision for the A1 retail is too high for a town centre location with a PTAL of 6a
and should be reduced to a maximum of 91 spaces, in order to comply with the London Plan
parking standards. Whilst the level of car parking for other land uses is within London Plan
standards, the site’s high PTAL would suggest a further reduction in provision or a car-free
approach. This would further support London Plan Policies 3C.17 Tackling congestion and
reducing traffic and 3C.23 Parking strategy. It is recommended that future residents are made
ineligible for car parking permits to curb overspill parking. Details are sought on how the 15
disabled parking spaces will be split between the different land uses. The intention to
investigate the possibility of setting up a car club is supported.

66      TfL notes the provision of 105 cycle parking spaces for the development. The amount
set aside for the A1 retail should be raised to a minimum of 33 spaces. There is no indication of
provision of showering and changing facilities for the retail employees. As this development
has excellent access to the London Cycle Network it is expected that there will be defined
exits/entrances and directions into the site for users of the network. All cycle parking should
meet TfL’s Cycle Parking Standards (2006). The cycle parking should be safe and secure,
monitored and accessible.

67      TfL expects this development to offer local improvements for pedestrians such as
footway resurfacing, the provision of better street lighting and the upgrade of crossings where
they do not comply with BV165 standards. Also, the possibility of upgrading the walking
routes between the site, local bus stops and Putney Bridge Underground station should be
investigated. TfL suggests the developer fund any upgrades, which could make these routes
safer and more attractive. This would support London Plan Policy 3C.21 Improving conditions
for walking.

68      The applicant is also requested to assess the two nearest bus stops against the standards
set out in TfL’s Accessible bus stop design guidance (Bus Priority Team technical advice note
BP1/06, January 2006), and contribute funds to the upgrading of these bus stops if required.
This should be secured in the Section 106 agreement.

69     A travel plan for the whole site has been submitted, but this development should include
a separate residential travel plan and workplace travel plan in order to comply with London
Plan Policy 3C.2 Matching development to transport capacity. The marketing and travel plan
measures currently outlined are generally supported but further details will be needed
regarding funding.

70     TfL recommends that a delivery and servicing plan (DSP) and a construction logistics
plan (CLP) be produced in order to identify possible ways to reduce and consolidate service and
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freight delivery vehicle movements, especially during peak hours. Delivery and servicing issues
require more detail. Safe drop-off/concierge facilities for the residential and religious land uses
could help reduce the number of failed deliveries. A DSP could also establish appropriate
servicing time restrictions and a booking system in order to encourage off-peak servicing. The
intent of Tesco to adopt sustainable measures in logistics by membership of TfL’s Freight
Operator Recognition Scheme is supported.

71     In summary, a number of outstanding issues need to be addressed before TfL can fully
support the planning application. TfL requires a reduction in the level of retail car parking.
The trip generation assessment needs to be reviewed. Separate workplace and residential travel
plans are required. Finally, the developer should supply a CLP and a DSP.

London Development Agency’s comments
72      Retail plays a vital role in London's economy, employing over 400,000 people and
supporting the economic vitality of all parts of the capital, with over 40,000 shops in London.
The Mayor strongly supports the government's policy of promoting consumer activity in town
centres, and as such and in accordance with London Plan policy 3D.1 (Supporting Town
Centres) the LDA supports the principle of this retail-led mixed-use development. The LDA
recommends the applicant focus their recruitment drive on residents within the Borough and
that appropriate retail training is provided to help people who have been unemployed for a long
time get back into the workplace. This will ensure the proposal is in line with London Plan
policy 3B.11 (Improving Employment Opportunities for Londoners). Employment & training
strategy needs to be produced.

73     In accordance with London Plan policy 3A.18 (Protection & Enhancement of Social
Infrastructure & Community Facilities) the net loss of community facilities such as church halls
must be resisted as the adequate provision of these types of facilities are very important for
regeneration and community cohesion. Whilst the Agency welcomes the proposal to demolish
and provide a new modern church hall with meeting and office space, it is vital that a suitable
alternative location is offered to the various users of the hall to ensure that activities can
continue as usual whilst demolition and construction works are being carried out.

74     Furthermore, with regards to the 52 residential units proposed, the Agency recommend
that LBH&F carry out sufficient needs testing to ensure that there is adequate provision of
community facilities such as GPs, schools, dentists, libraries etc to deal with the increased
population expected. Should additional facilities be required the applicant should be encouraged
to make a financial contribution towards additional provision. This can be secured in the
section 106 agreement.

75     In accordance with London Plan policies 3B.1 (Developing London's Economy) and
3B.11 (Improving Employment Opportunities for Londoners) the Agency recommend the
Borough obtain a suitable Employment and Training Strategy from the applicant. In particular,
the Agency recommends that the applicant provide on-site training or contribute towards
construction training. The LDA recommend that during the construction phase, the applicant
considers including initiatives that will allow for the recruitment of apprentices from local
schools, as well as encouraging the recruitment of new employees from school leavers, older
people and those that have been out of work for the long-term. Furthermore, the use of SMEs
should be encouraged during the construction phase of the development through appropriate
advertising, e.g. sending out notification leaflets to all local SMEs prior to construction

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commencing. This will ensure that the economic benefits that will arise as a result of this
development will be maximised for local residents and businesses.

Local planning authority’s position
76       Hammersmith & Fulham Council officers have yet to confirm their position.

Legal considerations
77      Under the arrangements set out in Article 4 of the Town and Country Planning (Mayor
of London) Order 2008 the Mayor is required to provide the local planning authority with a
statement setting out whether he considers that the application complies with the London Plan,
and his reasons for taking that view. Unless notified otherwise by the Mayor, the Council must
consult the Mayor again under Article 5 of the Order if it subsequently resolves to make a draft
decision on the application, in order that the Mayor may decide whether to allow the draft
decision to proceed unchanged, or direct the Council under Article 6 of the Order to refuse the
application, or issue a direction under Article 7 of the Order that he is to act as the local
planning authority for the purpose of determining the application and any connected
application. 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 statement and comments.

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

79      London Plan policies on retail, affordable housing, children’s play space, urban &
inclusive design, energy, transport and employment & training are relevant to this application.
The application complies with some of these policies but not with others, for the following
        Retail: subject to the Council’s views, the proposed retail scheme and assessment is
         acceptable. The scheme complies with policies 3D.1 – 3D.3 of the London Plan.
        Affordable housing: the maximum reasonable amount needs to be verified through a
         financial appraisal. The proposal does not comply with policy 3A.10 of the London Plan.
        Children’s play space: provision of on-site play space for under-5 children is required.
         The scheme does not comply with policy 3D .13 of the London Plan.
        Urban design: broadly acceptable but needs to address concerns raised relating to the
         treatment of the glazed stair core above the retained gatehouse facades to ensure
         compliance with London Plan policies 4B.8, 4B.11 and 4B.12. Further consideration to
         providing private or shared amenity space for all residential units to ensure the scheme
         represents a sustainable form of development in line with London Plan policy 4B.1.
        Inclusive design: the access arrangement complies with policy 4B.5 of the London Plan.
        Energy: the energy statement needs to be revisited and clarification required. The
         scheme does not comply with policies 4A.1 – 4A.8 of the London Plan.
        Transport: the transport assessment needs to be revisited and the car parking spaces
         needs to be (minimised) in line with the London Plan policies.

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        Employment & training: a clear strategy should be produced.

80       On balance, the application does not comply with the London Plan.

81     The following changes might, however, remedy the above-mentioned deficiencies, and
could possibly lead to the application becoming compliant with the London Plan:
        Affordable housing: submit financial appraisal.
        Children’s play space: provide on-site play area.
        Urban design: address concerns related to the glazed stair core and provide
         private/shared amenity space for residential units.
        Energy: revisit the energy strategy and provide clarification.
        Transport & parking: minimise the car parking spaces.
        Produce employment & training strategy.

for further information, contact Planning Decisions Unit:
Giles Dolphin, Head of Planning Decisions
020 7983 4271 email giles.dolphin@london.gov.uk
Justin Carr, Strategic Planning Manager (Development Decisions)
020 7983 4895 email justin.carr@london.gov.uk
Colin Wilson, Strategic Planning Manager (Planning Frameworks)
020 7983 4783 email colin.wilson@london.gov.uk
Tefera Tibebe, Case Officer
020 7983 4312 email tefera.tibebe@london.gov.uk

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