C:\Documents and Settings\to36235\Local Settings\Temporary Internet Files\OLKB\South Bank - final report1.doc
Advice for London Borough of Lambeth
Jubilee Gardens, Hungerford Car Park and South Bank Centre
22 September 2003
Building Design Partnership 16 Brewhouse Yard Clerkenwell London EC 1V 4LJ
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C:\Documents and Settings\to36235\Local Settings\Temporary Internet Files\OLKB\South Bank - final report1.doc 1.0 1.1 INTRODUCTION BDP were commissioned by LB Lambeth in March 2003 to undertake an independent assessment of the issues surrounding the potential planning conflict of designating Hungerford car park as both Metropolitan Open Land (MOL) and a Major Development Opportunity (MDO), in the LB Lambeth First Deposit Draft UDP 2002, and in response to various representations. 1.2 Hungerford car park commands an important riverside location between Jubilee Gardens and The South Bank Centre and is adjacent to Hungerford Bridge. Jubilee Gardens is an
important strategic site in London, which although has the benefit of MOL designation is in need of improvement. 1.3 The South Bank Centre (SBC) is a major cultural facility in London of both national and international importance and has aspirations to expand its cultural facilities at the South Bank, which could include development of Hungerford car park. Consultation with SBC and
understanding their requirements formed an important aspect of research. 1.4 A major part of this work has involved a series of meetings with stakeholders to identify individual objectives and areas of conflict and compatibility. A list of stakeholders who have been consulted as part of this study can be found in Appendix A. 1.5 The report concludes with advice for London Borough of Lambeth on the way forward. Brief 1.6 This study builds on the presumption that London Borough of Lambeth has two aspirations for the South Bank: To improve and extend Jubilee Gardens To see the South Bank and its environs enhance its role as a major cultural quarter for the benefit of the Borough and London. Jubilee Gardens 1.7 Jubilee Gardens is a small local park, which extends to 2.1 hectares and is a key open space along the Thames riverside. It extends from Hungerford Bridge and car park to County Hall in the West and from Belvedere Road to the Thames. It is well-used open space and contains a children’s play area. Jubilee Gardens provides an important setting for the London Eye and a visual pedestrian link to the Eye from Waterloo station at ground level, across part of the Shell Centre podium.
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C:\Documents and Settings\to36235\Local Settings\Temporary Internet Files\OLKB\South Bank - final report1.doc South Bank Centre 1.8 SBC manages an estate of nearly 12 hectares that extends from County Hall to Waterloo Bridge and from Belvedere Road to the River Thames. The estate is managed on a long lease from the Arts Council, which holds the freehold on behalf of the Government. The SBC has had a long held desire to expand. 1.9 The South Bank Centre’s Estate includes Jubilee Gardens, Hungerford Car Park, the Royal Festival Hall, the Purcell Room and the Hayward Gallery. Also on the estate but independent of the SBC are the British Film Institute’s National Film Theatre (BFI) and the former Museum of the Moving Image (MOMI). 1.10 Taken together with the immediately adjacent Royal National Theatre and the BFI’s IMAX cinema, the South Bank has the largest concentration of cultural facilities anywhere in the world. 1.11 The Royal Festival Hall is a Grade I listed building, there are no other listed buildings on the site. Adjacent to the site, both The National Theatre and Waterloo Bridge are Grade II*. 2.0 2.1 CONSULTATION In order to gain a thorough understanding of the local issues relating to Jubilee Gardens and Hungerford Car Park, BDP consulted a number of interest groups. Along with SBC, national bodies such as English Heritage and 20
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Century Society were consulted together with a
number of local community groups and the GLA. 2.2 From these stakeholder meetings there was overwhelming agreement that Jubilee Gardens was in a poor state and has been for too many years, there is a consensus that something should be done to improve Jubilee Gardens and quickly. There were less clear views on the nature of any new public space at Jubilee Gardens; however, those with more local concerns thought that it should be retained as a green informal space. While the other stakeholders were less specific, all agreed that it was an important strategic open space for London. 2.3 Views however, were mixed with regard to the redevelopment of Hungerford car park. South Bank Centre BDP met with SBC to discuss their requirements and development proposals. SBC have furnished BDP with information regarding the SBC redevelopment, all of which however, London Borough of Lambeth would have seen before. It includes the DEGW development brief 1999 and the Rick Mather masterplan of 2000. Contained within this information is a list of future requirements for the site and associated areas. The 2000 masterplan had a provision for 150,000m² of new cultural
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C:\Documents and Settings\to36235\Local Settings\Temporary Internet Files\OLKB\South Bank - final report1.doc and commercial space of which approximately 70,000m² included an enlarged Queen Elizabeth Hall, New Purcell Room, National Film Theatre x 5, MOMI, BFI Offices, BFI Library, enlarged Hayward Gallery, a 16-screen multiplex and a new third auditorium. After Public Consultation in 2001 and as a consequence of a major reduction in developable space, SBC and BFI reviewed the arts brief and reduced their requirements by 30,000m². SBC have advised BDP that these areas will be amended further and an updated volumetric brief will be issued in the near future. To date, SBC consider redevelopment of Hungerford car park as imperative to their expansion proposals and do not consider that their future requirements could be met solely on the Waterloo site. GLA It is an objective of the draft London Plan to retain the South Bank as a key cultural centre. Would support development on Hungerford Car Park, so long as it was a cultural facility and not a commercial building. Any development would have to be of a world class standard. The area of MOL could not be reduced; i.e. roof gardens would have to give back the same amount of public space. The GLA would like to see the Hayward Gallery and the Queen Victoria Theatre replaced and would support a tall building on the site. Ideally Jubilee Gardens would be extended to produce a first class public space for London, while the SBC requirements could be accommodated within the Waterloo and Hungerford bridges. BFI BFI are looking to relocate to more suitable and larger premises, which may be sooner than any development on the South Bank can be brought forward. The BFI are currently looking at other potential premises next to the Tate Modern in Southwark. The BFI believe that the latest SBC scheme offers them a new purpose built facility with the Hayward Gallery on Hungerford Car Park.
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C:\Documents and Settings\to36235\Local Settings\Temporary Internet Files\OLKB\South Bank - final report1.doc 20 Century Society They recognise that Jubilee gardens is an important public space in London As yet they hold no firm opinion on development on Hungerford car park Either option of development or no development on Hungerford car park would be viable They would like to see progress in this area after so many years of neglect and inactivity The management of the Society has recently changed and they now do not take such a strong stance as to the importance of the Hayward Gallery, Queen Elizabeth Hall and Purcell Rooms as exceptional examples of 20 century architecture and would be open to redevelopment proposals. Arts Council Refurbishment of Royal Festival Hall will require a temporary building on Hungerford Car Park The Arts Council want the refurbished Royal Festival Hall but are undecided about the temporary building on Hungerford Car Park Arts Council would like to see Hayward Gallery, Queen Elizabeth Hall and Purcell Rooms demolished There is a view that the whole of Hungerford car park should be made into green space Hungerford car park is needed for the expansion and funding of the South Bank Centre. Commercial development will be needed in some form Coin Street Community Builders The Coin Street approach to the Hungerford Car Park issue is that an extension to the gardens would be appropriate with some active uses close to the viaduct. It supported the idea of a temporary building on the car park while the Royal Festival Hall is being refurbished. A clear statement from Lambeth and the GLA is needed. Waterloo Community Development Group Generally against development on Hungerford car park and would like to see the car park fully integrated into Jubilee Gardens.
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C:\Documents and Settings\to36235\Local Settings\Temporary Internet Files\OLKB\South Bank - final report1.doc Like many others feel that Jubilee Gardens has been neglected and are pleased that CABE launching a landscape competition for a new public space. In the initial stages the WCDG did not want to see any progress unless the whole space was brought forward. However, due to the fact that no progress would have been
achieved if the whole space were considered, the Waterloo group supported improved landscaping of the Jubilee garden with the condition that the Hungerford car park is integrated into the design process. This would ensure that if the car park comes forward at a later date it could successfully be integrated as an overall scheme. County Hall Residents Association Would like to see Jubilee Gardens remain an informal grassed area. Want Hungerford car park to become part of Jubilee Gardens. Friends of Jubilee Gardens Would like to see the whole area as a green park. Have undertaken study to show that SBC can accommodate all their needs on their existing site. Would like to see activity under the arches as well as permeability through to the SBC. Believe that MOL should not have MDO designation as well. Underground development not considered appropriate. Will fight against the Liner building Development pressure in this area must be counterbalanced by open space provision. English Heritage Underground development could be a solution Would prefer to see Jubilee Gardens all green open space but development would not be a disaster English Heritage have failed to get The Hayward Gallery, Queen Elizabeth Hall and Purcell Rooms listed on two occasions, but would still consider them as listed buildings in any planning application. They are open to proposals for the Hayward Gallery, Queen Elizabeth Hall and Purcell Rooms.
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C:\Documents and Settings\to36235\Local Settings\Temporary Internet Files\OLKB\South Bank - final report1.doc Shirayama Aspirations are to remove the elitism from the South Bank and make the area more of a family area. Geoff Mann, in his own view, thinks that the South Bank Centre are being ridiculous with their proposals to build 16,000 seater performance space, as they have no funds from Central Government so there is a real viability issue. He also questions the demand for such a facility. He believes that the Arts Council’s brief is flawed and that this 16,000seater theatre could go anywhere in London, it is not essential that it be on the South Bank. Furthermore he reckons that it is too much to ask to build another white elephant in London and ask the pubic purse to pay for it. Shirayama are also interested in developing a convention centre for London under Jubilee Gardens and have begun to look at options to achieve this. Believe that the CABE public space competition is premature. South Bank Employers Group Support a temporary building on Hungerford Car Park Believes that if possible all of Hungerford Car Park should be open space, however if a compromise were necessary then limited development accommodating appropriate uses would be acceptable. Howard Simmons does not feel that the Hayward Gallery, Queen Elizabeth Hall or Purcell are of exceptional quality and could be considered for demolition. 3.0 IN LIGHT OF THE OBJECTIONS TO THE DRAFT UDP, IS THE DRAFT UDP POLICY APPROPRIATE AND JUSTIFIABLE?
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The designation of Jubilee Gardens as MOL is both appropriate and justified and all London Boroughs have supported this designation. The Government Office for London (GOL)
originally objected to the designation due to the size of Jubilee Gardens. However, during this time the London Planning Advisory Committee (LPAC) had an Open Space Working Party, who were preparing a paper for the Government regarding the designation of MOL, Jubilee Gardens was used as a case study. The Government accepted this advice on MOL, and the MOL guidance was subsequently produced. 3.2 The current designation in the Draft UDP of Hungerford car park as both MOL and a MDO is quite unique, no other examples have been found of this dual designation. By their very nature these designations are generally in conflict. In this instance, the only reason to
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C:\Documents and Settings\to36235\Local Settings\Temporary Internet Files\OLKB\South Bank - final report1.doc entertain the dual designation would be for the benefit of the expansion of the SBC; it should not be for bespoke commercial development. To date the SBC have provided no evidence that development of Hungerford car park is an essential component of their expansion plans. BDP therefore believe that the dual designation should be dropped and just the single MOL designation granted to this site. 3.3 In light of our findings to date we would suggest the Borough retain the MOL designation of Jubilee Gardens and Hungerford Car Park and reinstate the proposal from Lambeth’s adopted UDP to extend Jubilee Gardens public open space over the car park site. 4.0 4.1 IS THERE ANY JUSTIFICATION FOR REDUCING THE MOL SITE AREA? There is no evidence to suggest that the area of MOL should be reduced. The SBC have yet to provide convincing evidence with any volumetric studies which indicate that Hungerford car park should be redeveloped and hence removed from MOL due to the inability of the Waterloo site to fulfil space needs. 4.2 The area surrounding Jubilee Gardens is under increasing development pressure: the number of residential dwellings has increased in the Waterloo area and there are several outstanding planning consents for large office developments, one of which is in excess of 1million sq.ft. Furthermore the London Eye has increased visitor numbers by over 4 million to this area each year. It was expressed at a meeting with the GLA that with the increasing intensification around Waterloo, Jubilee Gardens is not large enough, and would not support an application to reduce the area of MOL. Furthermore the Borough suffers from an overall open space deficiency. 5.0 HOW CAN SBC OBJECTIVES BE MET IN FULL OR IN PART? IS THERE A WAY THAT LB LAMBETH’S OBJECTIVES CAN BE MET? IS THERE A SOLUTION TO BOTH? 5.1 It is agreed that the SBC and Waterloo area is ripe for change and development, however as both a cultural quarter of international importance and one of the only green open spaces along the river in Central London, the area will come under increasing and conflicting development pressure. 5.2 It is of course, in the SBC’s interests to maximise the development potential of their site, including Hungerford car park and realise all potential funding and financial opportunities. However this should not be to the detriment of the importance of a strategic open space in this location. Likewise, the retention of Hungerford car park as MOL must not obstruct the
potential of furthering the international importance and status of the SBC, if it is undeniably proved that the car park area is required. 5.3 It is our view that the Waterloo Site could accommodate a significant volume of development without the requirement of Hungerford car park. However, the predicament that designers will
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C:\Documents and Settings\to36235\Local Settings\Temporary Internet Files\OLKB\South Bank - final report1.doc face will be to design the buildings sympathetically on an important and dominant site along the river and without compromising the setting of the listed building and listed bridge. 5.4 Further research is required as to the exact massing, bulk, height and design issues relevant to the area in order for LB Lambeth to counter any proposed arguments that will probably arise from SBC. SBC will potentially try and counter any planning arguments with commercial and funding issues, although funding is of importance to the future of the scheme it is not a reason to grant planning permission. The onus is on the SBC to secure adequate funding. 5.5 6.0 6.1 These ideas have been informally put to SBC who are considering their response. WOULD A TEMPORARY BUILDING BE JUSTIFIED OR APPROPRIATE? If the SBC were to provide a strong case that a temporary structure was essential to facilitate the development of the existing site then a temporary building may be appropriate. However, it must be strongly noted by LB Lambeth that both The Royal Opera House and Sadler’s Wells managed to renovate and redevelop their premises whilst seeking temporary accommodation off site in other existing facilities for the duration of their building works. Indeed The Royal Albert Hall managed a complete renovation of a Grade 1 listed building in situ. There are therefore recent precedents in London that indicate a new temporary structure should not be a given requirement in SBC’s expansion plans and indeed that it does not need to be located in the same area as the original building. BDP therefore believe that alternative existing
accommodation could probably be found elsewhere in London without the need for a new temporary structure on Hungerford car park. 6.2 However, if a case was strongly put forward for a temporary structure on the car park, it is in our view that it must only be included as part of an overall masterplan and phasing programme for the redevelopment of the SBC. An application must be presented in the wider context of a development masterplan for the SBC to include Queen Elizabeth Hall, Hayward Gallery and BFI. Its inclusion in a possible consent should be via s106 agreements, which would give LB Lambeth increased assurance of its temporary nature. 6.3 The temporary consent would also have to be conditioned so that the building would be removed on an agreed date when the building works would be complete. There is a danger that if a temporary consent were granted, it would set a precedent for development on the site and the SBC could apply to make it a permanent structure. The likelihood would be that an Inspector could grant permission, if the temporary building was sympathetic to Jubilee Gardens and the surrounding area. 7.0 7.1 THE WAY FORWARD The next steps must be to allow for a forum where SBC and LB Lambeth can work together so that both their aspirations can be achieved for the redevelopment of a new 21st Century,
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C:\Documents and Settings\to36235\Local Settings\Temporary Internet Files\OLKB\South Bank - final report1.doc expanded cultural facility and a well landscaped open park area on MOL. In this way, both partners can be satisfied without also compromising the aspirations of the local community. 7.2 A thorough reinvestigation of the site constraints and development opportunities of the Waterloo site should therefore be undertaken jointly between SBC and LB Lambeth to form the basis of a development brief for the area. The preparation of a development brief and framework would be the optimum way that both SBC and LB Lambeth can mutually commit to the area’s redevelopment. Much of the negotiation of areas, use, volume, scale, massing and height could be discussed at this early stage. The development brief should be tested at UDP Inquiry, which would give it both added status and the opportunity to thoroughly test all the arguments without the rigours of a detailed planning application. 7.3 The development brief could then form the basis of a strong set of policies within the UDP, which could pave the way for significant intensification of use on the Waterloo site. This would have the added benefit of securing high levelhigh-level political agreement within the Council. 7.3 However, in the absence of a development brief LB Lambeth must act upon the information before them with regard to Hungerford car park. As SBC have provided no definitive reason for the need to develop on the car park, LB Lambeth should remove the dual designation of MOL and MDO from the UDP and persist with a sole MOL designation as previously. 7.4 SBC will likely object to this reversal of attitude with regard the MDO designation, although most other stakeholders in the area would be in agreement. With regard the development of a temporary building for phasing purposes, BDP’s previous experience indicates that renovation and redevelopment of large cultural buildings of international importance in London do not require new buildings as a temporary solution, and certainly not necessarily in the same location. BDP would therefore advise that a comprehensive justification for a temporary
facility would be required. 7.5 BDP conclude that there is a strong planning argument that the MDO designation should be removed from the Hungerford car park in the Draft LB Lambeth UDP.
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C:\Documents and Settings\to36235\Local Settings\Temporary Internet Files\OLKB\South Bank - final report1.doc APPENDIX A
List of all Stakeholder’s consulted.
CABE Arts Council English Heritage Greater London Authority 20 Century Society South Bank Centre British Film Institute South Bank Employers Group Waterloo Community Development Group Friends of Jubilee Gardens Coin Street Community Builders County Hall Residents Association Geoff Mann (RHWL) representing Shirayama Shell Friends of Jubilee Gardens Lambeth Councillors
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