Chapter 4: Transport

Figures:

4A - Rail stations 4B – Cross River Tram 4C – Road Network 4D – Waterloo Cycle Network 4E – River Piers

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4.1 Waterloo has excellent public transport accessibility but several modes have

reached or are reaching capacity and need improvement. Although local residents benefit from these transport links, they are at the same time affected by congestion, noise and air pollution.

4.2 Lambeth promotes sustainable travel through policies set out in the Lambeth UDP

and Local Implementation Plan in order to maximise efficient use of the transport system and reduce environmental impacts. The UDP and LIP seek to manage private car use and traffic impacts, encourage public transport use and promote cycling and walking. This chapter sets out a transport framework for Waterloo – Chapter 5 on Public Realm also covers improvements for pedestrians and cyclists.

4.3 The key UDP policy for transport in Waterloo is policy 80:

Policy 80 Transport in Waterloo The scale and cumulative impact of development proposed should be within the capacity of the public transport network to cope. Foot-way capacity will be increased and the quality of the pedestrian environment improved. Development proposals should demonstrate that they will have an acceptable impact on pedestrian capacity, connectivity and integration between places, cumulatively with other projected developments, or contribute towards wider proposals to address these issues. In conjunction with TfL, the impact of traffic on major roads will be reduced with Waterloo Road, The Cut and York Road in future having pedestrian, cycle and public transport priority, and the impact of traffic reduced on Baylis Road and Westminster Bridge Road. Major development should include full proposals for servicing (including consideration of alternatives) compatible with the pedestrian safety and priority. Where there are transport capacity constraints arising either cumulatively or from individual proposals, development will be required to contribute to a joint fund to secure improvements. A range of planning obligations will be secured towards this, triggered by phased implementation, to overcome problems that could otherwise restrict the potential of development.

Major developments should be accompanied by a Transport Assessment (TA). These should be coordinated between proposals and include: a shared assessment of baseline conditions, the capacity of public transport infrastructure now and in the future, and the scale and phasing of development and infrastructure improvements. Improvements to public transport accessibility, capacity and connections will be undertaken in Waterloo, taking account of its role as a major interchange.

TAs shall include a pedestrian demand analysis report containing detailed information on generated demand, related to foot-way widths, access routes, safety, and the cumulative impact of proposals within the area.

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4a) Mainline Rail 4.4 Waterloo station accommodates 260,000 journeys a day, making it the busiest

station in the UK. 50% of overground rail passengers also use London Underground services, with 4 tube lines passing underneath the station, making the station a very complex and busy interchange.

4.5 The station is already considered to operate at capacity during peak periods, and

rail passenger demand is forecast to increase 20% from 2006 to 2016, and by 32-38% from 2006 to 2026. Capacity constraints at the station are driving proposals to improve and redevelop the station.

Figure 4A - Rail stations

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4.6 The redevelopment of Waterloo Station In order to increase passenger capacity on the train routes from Waterloo, longer

platforms are needed at the terminus station - initially to accommodate 10 car trains and in the longer term 12 car trains. This will necessitate significant alternations to the platforms at Waterloo Station and reuse of the (longer) ex-Eurostar platforms. In addition, the existing concourse is at full capacity and more concourse and circulation space is needed.

4.7 Network Rail completed a pre-feasibility study in 2007, which considered options

for redeveloping the station and is commissioning a further study, due to be completed in 2009 examining in more detail how to bring forward the required station improvements. Lambeth will publish a planning brief for the whole station (the mainline station, the former International Terminal and Waterloo East) dealing in more detail with the development constraints, phasing of improvements and integration with nearby projects.

4.8 In the short to medium term, the five Eurostar platforms will be brought back into

use and other platforms reconfigured to provide for 10 car trains by 2014. The western entrance (facing York Road) will be reopened and the Station planning brief will consider options for greater concourse space, opening out the station at street level and better/direct links with Lower Marsh.

4.9 The long-term proposal for the station seeks to achieve a world-class transport

interchange facility with increased capacity to cater for future demand growth while exploring opportunities for commercially led development above, beside and within the station. This would entail substantially altering and rebuilding parts of the station, but deliver a radically improved station with capacity for long term travel growth.

4.10 Lambeth will ensure that any project to improve the station is used as an

opportunity to improve integration with the surrounding area. The Council’s preferred way to achieve this would be for the station concourse to be lowered progressively to street level. This would create a larger concourse area to relieve capacity problems and improve access to the Underground services. A street level concourse could also improve circulation interface between track level and the underground ticket hall and create opportunities for new retail, business and community facilities. Reuse of the Waterloo International Terminal should be brought forward in a complementary manner with the rest of the station, with short and medium term opportunities for new commuter facilities and improved pedestrian access.

4.11 Lambeth’s key objective is to increase permeability through and around the station

– to provide better connections with the area and to disperse passengers more evenly. Opening the station along the eastern and western edges at street level would allow improved access to the ticket hall and Underground directly from Lower Marsh and York Road. Access for pedestrians should be primarily at street level along desire lines and new frontages should be provided to create an active environment around the station. Removal of service roads would help achieve this but would only be supported if satisfactory replacement bus, taxi and general station servicing can be provided. Development of adjacent sites will be expected

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to facilitate improved access from the station to the wider area by creating new and improving routes.

4.12 Waterloo East Station serves large numbers of passengers from south east

London and Kent. Interchange with Waterloo Station is via stairs and a footbridge and is not convenient. Links to the main station and direct to the streets need to be improved and should be included in the wider plans for the main station.

4b) London Underground 4.13 An assessment of congestion on the Underground at Waterloo was conducted as

part of the GLA Planning Framework in 2007 leading to the identification of locations where heavy congestion is predicted. Critical areas highlighted were:

• Jubilee Line ticket hall entrance portal - due to restricted width of the main

opening given the proximity of the escalators; • Waterloo and City Line departures platform, staircases and ramps - due to

limited train services and exceptional peaks; • Northbound Bakerloo Line platform - due to restricted platform width; • Services northbound on the Northern Line, westbound on Jubilee Line,

northbound on the Waterloo and City Line are all close to capacity in the am peak.

4.14 A series of improvements are scheduled for the Underground system in order to

overcome current capacity constraints. Service improvements are expected to come through PPP. Improvements to signalling of the Jubilee Line are planned for 2009, allowing for an increased peak hour capacity. However, these increases in capacity are expected to be offset by general passenger growth.

4.15 A significant increase in Underground capacity could be achieved by TfL’s long

term aspiration of rebuilding Camden Town station and splitting the Northern Line in two segregated routes. Running trains between all combinations of branches, as is currently done, means around 20 trains per hour can run on each of the central sections, because merging trains have to wait for each other at the junctions. Segregating the routes would allow 30 trains per hour on all parts of the system, resulting in an increase of about 50% capacity on the Northern Line. However, rebuilding Camden Town station is not included in TfL’s Business Plan and there is no prospect of this project starting before 2016.

4c) Buses 4.16 Waterloo is an important hub for bus services and for bus passengers to

interchange with other modes, and bus use is predicted to rise. In order to accommodate bus requirements, Lambeth and TfL will ensure that overall provision of stops and stands is retained in the area, but reviewed and where appropriate replaced in order to provide the optimum safe and accessible interchange. The aim is to improve Waterloo as an effective and easy to use hub and interchange, reduce impacts on environmental quality for pedestrians and improve public realm.

4.17 The interchange should be enhanced in connection with improvements to the

station and public realm improvement projects. Lambeth is concerned that these

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improvements should deliver an attractive and usable environment that meets the needs of bus passengers, cyclists and pedestrians.

Bus Interchange 4.18 The current bus station in Tenison Way is a core element of the TfL bus network

and it needs to be retained and enhanced through public realm improvements. It is within the Waterloo City Square project area and bus operation and interchange improvements will be integrated into the project.

4.19 The Waterloo City Square project will provide for improvements for bus passengers

and create a better approach to the station. The project should create clear and convenient routes for bus passengers changing modes at Waterloo, and create attractive and safe routes.

4.20 Creating concourse space at street level in the railway station will improve the

convenience of interchange between train/Underground and bus. For example, the introduction of new entrances on the western side of the station and increased at grade permeability offered by redevelopment of Elizabeth House would allow improved interchange on this side of the station.

4.21 Bus services also use Cab Road, providing excellent bus/train interchange, and

use stands in Mepham Street, in front of the station. These two routes are an important part of the bus capacity serving Waterloo, but they cross the main flow of pedestrians emerging from the station. Greater use of street level pedestrian access to the station would improve this arrangement. Lambeth will seek improvements that continue to provide convenient bus interchange as well as improving pedestrian movement.

4d) Cross River Tram 4.22 The Cross River Tram (CRT) is a project to build an on-street tram link running

between Euston and Waterloo, with branches to Camden Town and Kings Cross in the north, and Brixton and Peckham in the south. At Waterloo, the tram route would run along Waterloo Bridge and Waterloo Road, continuing south to Elephant and Castle, with a branch to Brixton via Baylis Road.

4.23 The tram would support regeneration in deprived parts of Lambeth and Southwark

further south, and provide increased capacity between Waterloo and Euston to relieve crowding on the tube.

4.24 The Mayor of London has announced that due to budgetary constraints the Cross

River Tram will no longer be taken forward. The Mayor has recognised the merits of the Cross River Tram and has proposed work to assess the alternatives solutions, while the Cross River Partnership will examine other potential funding streams for the Tram project or suitable alternatives.

4.25 Lambeth believes that a new tram link with central London would help break down

barriers and ease access to jobs for people in Lambeth. Lambeth is also concerned that alternative new public transport capacity is needed to relieve overcrowding in the Waterloo area and improve interchange for passengers.

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Lambeth therefore continues to support the tram project and will lobby for its construction and safeguard the route.

Figure 4B – Cross River Tram

4e) Highway Network 4.26 The GLA’s Waterloo Planning Framework (2007) analysed traffic flows in the area

using the Congestion Charging Scheme (CCS) model and concluded that both radial and orbital movements in Waterloo are heavily trafficked.

4.27 The most heavily trafficked roads include York Road, Waterloo Road, Stamford

Street, Westminster Bridge Road and Lambeth Road. These streets experience a high level of through traffic.

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Figure 4C – Road Network

4.28 Critical junctions in terms of congestion are identified as:

• Waterloo Road roundabout (IMAX); • Westminster Bridge / Lambeth Palace Road junction; • Waterloo Road / Baylis Road / The Cut junction; • Westminster Bridge Road / Kennington Road junction.

4.29 High traffic flows along these roads result in severance for local pedestrian and

cycle movements and lead to delays to traffic and buses.

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4.30 The current dominance of vehicular traffic in the area around Waterloo Station should be reduced and a generally more efficient traffic layout should be aimed for, that allows for a more pedestrian friendly environment. Lambeth will promote public realm improvements and traffic management measures in order to reduce the dominance of traffic and make Waterloo more pleasant to walk around. In new development, routes for service vehicles should be designed in such a way as to discourage through traffic.

4.31 All highway alterations and public realm improvements should avoid adverse traffic

impacts to side streets. Rat running can cause to disturbance to residents, and all schemes should modelled in advance to identify possible impacts and mitigate these impacts through appropriate measures such as treatment of side streets and traffic calming.

4.32 Applications for major new developments will be expected to include a sustainable

travel plan, showing how access and servicing movements will minimise environmental impacts. The Lambeth Business Travel Network can provide advice to businesses on resources and initiatives in the area, and help develop a travel plan. Development proposals should also include proper servicing facilities and these should normally be off-street. Travel plans should minimise the impacts of freight and servicing on local communities and comply or exceed environmental standards, having regard to the Mayor’s London Freight Plan. Where appropriate, specific Delivery and Servicing Plans and Construction Logistics Plans should be submitted to address issues of servicing and freight transport.

4f) Pedestrian Network 4.33 Improving pedestrian amenity, accessibility, permeability and legibility is a core

objective for the Waterloo SPD and all development proposals should contribute to enhancing the overall pedestrian environment.

4.34 Waterloo should be a connected place with an improved network of pedestrian

links. Where possible, these links should be provided along key desire lines and at grade. Raised walkways and subways should be removed and replaced with at grade facilities.

4.35 Redevelopment of sites around the station should create new street level routes

and access to the station, eg. redevelopment of Elizabeth House into distinct blocks will open up street level access to the station from York Road with significant improvements in public realm space. The Waterloo City Square project aims to find solutions to removing the subway system in the proximity of the IMAX roundabout and improve the pedestrian environment from The Cut to Waterloo Bridge.

4.36 Lowering the station concourse to street level and providing additional entrances to

the station from all sides would improve access and permeability for pedestrians. Severance of the local area resulting from the station would be significantly reduced.

4.37 Proposed developments should add and connect to the existing network at grade

and active frontages should be created along key links. In contrast, pedestrian

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links along service road should be avoided. Pedestrian links to the South Bank and between the green spaces in the area should be a particular focus of improvements.

4.38 Footway capacity will need to be increased to create better conditions for

pedestrians and a more pleasant environment. In particular York Road and the links between Waterloo Station, the Hungerford Bridge, and the South Bank would benefit from improvement.

4.39 Improved wayfinding for pedestrians is also needed to help people using the area

find convenient routes to their destination. The Legible London pilot scheme will help to address this by providing information in the street in an attractive format that is being installed across central London

4.40 The public realm guidance in chapter 5 builds on these principles in more detail. 4g) Cycle Network 4.41 Cycling demand in and around Waterloo is high and adequate infrastructure and

facilities need to be provided to cope with and encourage rising demand. 4.42 Lambeth and TfL have carried out two CRISP Studies (Cycle Route

Implementation and Stakeholder Plan) in Waterloo to identify key cycle route improvements. Lambeth and TfL will use these studies as the basis for promoting and improving the following two key cycle routes:

• Route 1 along Upper Ground to Lambeth Bridge Roundabout • Route 2 along Cornwall Road, along Baylis Road and Hercules Road to

Lambeth Walk. 4.43 Although there is already some provision for cyclists on these routes, work needs

to be carried out to make them fast, safe and comfortable. 4.44 The routes should

• improve road safety • provide cohesive, continuous routes, with continuity at the borough

boundaries with Westminster and Southwark • remove significant barriers to cycling making it a more attractive option and

encouraging an increase in mode share of between 100% and 300% by the end of 2010

• improve permeability with connections serving key attractions and trip generators in the area.

• in the case of the Upper Ground Route, provide an attractive and convenient alternative route, particularly for commuters, to the Riverside Walk where cycling is not permitted.

4.45 Cycle access and egress to and from Waterloo station should be improved from all

directions and clear links to cycle routes should be established, improved and well signed. Priority provision needs to be made at all junctions on the approaching arms.

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4.46 The proposed Waterloo City Square, including improvements to Waterloo Road, aims to improve cycle movement through the area and the needs of cyclists will be incorporated into the design. Similarly, the new public realm outside station to the north including the area in front of the Victory Arch and around Elizabeth House would allow for much better cycle movement.

4.47 New developments should connect to and improve the cycle network with direct,

safe and well-lit cycle routes. Adequate secure cycle parking needs to be provided both for office and residential development. Cycle parking provision in developments should exceed the standards set out in Policy 14 of the Lambeth UDP.

4.48 To facilitate an easy interchange between cycling and public transport, secure

cycle parking should be provided at station entrances and in the proximity of the bus station stops. TfL intend to provide at least one large cycle park at or near Waterloo station with sheltered facilities, lockers and maintenance and repair service, ideally combined with cycle rent facilities. An area-wide cycle parking strategy may be required to ensure the different types of cycle parking that are proposed provide convenient and secure provision for cyclists.

4.49 In May 2010, TfL will introduce a cycle hire scheme to Zone 1 in order to

encourage more people to cycle in central London. Several cycle stations will be provided in the Waterloo area and routes will need to be improved to cope with the increase in cyclists. Additional sites for cycle stations should be considered as part of development proposals.

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Fig 4D – Waterloo Cycle Network

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4h) Off Street Parking and Coach Parking 4.50 Given the excellent public transport provision in the area, parking provision (car

and coach) will be kept to a minimum and car-free development will normally be encouraged. The Council is promoting car-clubs as an alternative to car ownership and has been successful in expanding the number of places substantially, and these schemes are particularly suitable for residential schemes in Waterloo.

4.51 Policy 82 of the UDP sets out Lambeth’s approach:

4.52 Lambeth has assessed the operational requirements of uses in the area such as ITV and the South Bank Arts Complex and aims to rationalise the number of off-street car parks that remain as part of an overall sustainable approach to transport.

4.53 A problem arising from the popularity of visitor attractions on the South Bank is the

very large number of coaches and other vehicles that arrive to set down and collect visitors. Since adopting the UDP, rather than providing a coach park in the area, Lambeth’s emphasis is now on providing designated drop-off points to avoid coaches being forced to pick up/drop off at unsuitable locations such as bus stops.

4i) Taxis 4.54 Taxis play an important role in servicing the station. Requirements for the

provision for this mode need to be included in redevelopment schemes, and particularly in any redevelopment option for the station. Existing capacity for servicing the station should be retained or replaced, but improved provision will be encouraged, particularly where this helps to reduce conflicting pedestrian and vehicle movements. Major development proposals in Waterloo should consider how provision for taxi drop off will be accommodated while reducing these conflicting movements.

4j) River Bus Services 4.55 Waterloo has two piers - Festival Pier and Waterloo Millennium Pier - with good

river bus services to other parts of central London, Canary Wharf and the O2 Arena. Lambeth supports their greater use, and while they have limited capacity to provide any significant relief to congestion on other modes, these services are well

Policy 82 Off Street Parking and Coach Parking in Waterloo South Bank off-street parking will be confined to the Coin Street and Royal National Theatre sites. Limited operational and parking for people with disabilities is permitted as part of the South Bank Centre redevelopment. The Hungerford Car Park should be removed as part of this or other development in the area. Coach Parking will not be permitted (other than on designated on-street spaces and in coach parks to be required and secured as part of the Waterloo Station development); otherwise only short term stopping at pre-booked designated places (e.g. The South Bank Centre) will be permitted. Coach bans will be extended in residential areas.

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used and play an important role in the sustainable movement of people in central London.

4.56 The LDA has produced a River Thames Pier Plan (April 2009) to set out a rationale

for pier provision on the Thames up to 2025. This anticipates that there is likely to be additional transport demand arising from the large amount of development proposed in Waterloo, and that some of this extra demand could be met by river services. The Pier Plan therefore advocates the extension of the Waterloo Millennium Pier by 2015 to accommodate future demand.

4.57 The Pier Plan also highlights the potential of the Festival Pier which is not

operating at full capacity. Growth in the leisure market together with additional travel demand generated by development in Waterloo may contribute to increasing use of the pier. The Pier Plan advocates an upgrade of the pier and advocates an extension to the pier should any extension to the Millennium pier not be possible.

4.58 The Pier Plan identifies a 2km gap in pier provision between Festival Pier and

Bankside Pier in Southwark and advocates a new Southbank Pier between Waterloo Bridge and Blackfriars Bridge by 2015 to meet tourist and commuter travel demand from new development in the area.

Figure 4E – River Piers

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Chapter 5: PUBLIC REALM

Figures • 5A – Pedestrian route network • 5B – Public realm projects • 5C – Parks and open spaces

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5.1 The public realm plays a hugely important role in making Waterloo a successful,

vibrant and thriving place where people want to spend their time. Lambeth aims to create a world class place and the Council’s strategic approach is set out in Policy 81. Policy 81A is set out in chapter 1 of this SPD as part of the Vision for Waterloo, while Policy C and D apply specifically to public realm.

Existing public realm 5.2 Some streets and spaces in Waterloo have been improved to a high standard and

are already successful, attractive places, such as the Riverside Walk, the Festival Hall environs and The Cut. Hence, these areas are very well used, and even congested at points, while other parts of Waterloo are difficult or unpleasant to walk through.

5.3 A key structural problem is the lack of permeability through parts of the area

caused by massive transport infrastructure - the railway viaduct, the IMAX roundabout and Waterloo Station. Routes are further disrupted by vertical detours created by underpasses and upper level walkways as well as badly placed steps

Policy 82 Urban Design and the Character of Waterloo C. A Connected Place – An excellent network of pedestrian links will be

developed and retained in Waterloo. As many as possible of these should be at grade and focused to make the routes between places clear. Major developments should show how they would add to and connect to this network, including proposals on other sites. In particular, developments, which include or connect with the royal Festival Hall Terrace/Hungerford Bridge level and or the Waterloo Station concourse level, should demonstrate how they would connect, predominantly at grade. This includes Waterloo Station, as and when it is remodelled. This should be done through a joint study.

Where they need to be kept, raised walkways, subways and paths, and

viaduct roads under the railway should be made safer, better lit and more inviting, including, increased active frontage uses facing onto them, and increased activity at street level.

D. A High Quality Public Realm - A co-ordinated approach and upgrading of

signage, lighting, materials and street furniture -especially to cope with anticipated visitor flows – will be secured through planning obligations. Public spaces and green spaces will be created and secured as part of major proposals and through regeneration schemes. These spaces will be connected to the riverside walkway, with well-designed defined edges; also including entranceways with active frontages and compatible uses around them.

Dead frontages and amorphous and leftover spaces and car parks

between major buildings will be improved, and should be removed before development

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and stairs, mainly around the station and near the Riverside Walk. These make routes particularly bad for disabled people. Access to the station is made worse by heavily trafficked streets and service routes.

5.4 The Riverside Walk is very successful as a linear route but links “inland” are not

clear – it can be difficult to know which link to take and where it goes - and as a result the South Bank can feel isolated from the rest of Waterloo.

5.5 Other problems resulting in poor conditions for pedestrians include:

• Dominance of traffic engineering over the environment • Low standard of paving quality and maintenance • Lack of consistency in paving and street furniture • Street clutter with a proliferation of signs • Narrow pavements • Low tree cover • Poor lighting

5.6 Improving the public realm is fundamental to changing how people experience

Waterloo and providing a high quality setting to the various events and activities that take place there. Waterloo is already used as the location and backdrop to major London events and the public realm needs to be improved to the appropriate high quality and to accommodate the rising number of visitors.

Public realm strategy – Making Waterloo more pedestrian friendly 5.7 Much of the pedestrian environment is functional and uninviting at present. A

primary concern of this SPD is to enable pedestrians to walk through the area at ground level, creating an exciting, safe, convenient and inclusive route network. Fig 5A shows a pedestrian route network for Waterloo with a hierarchy of pedestrian routes through the area and missing links that Lambeth considers are vital to making walking through Waterloo more convenient and enjoyable.

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Fig 5A Pedestrian route network

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5.8 Other priorities will be to improve the quality of the public realm, increase

permeability, particularly north-south connections improve strategic and local linkages and connectivity and create a more pedestrian friendly environment.

5.9 Section 7.2 of this SPD sets out Lambeth’s principles for improving the public realm

in Waterloo and how projects will contribute to achieving a better public realm. There is a substantial body of work that has already been carried out covering Waterloo’s public realm and this SPD draws up the documents below.

5.10 The policy context is set out in:

• Lambeth UDP (2007) 5.11 Lambeth’s and Transport for London’s programme of transport and streetworks are

set out in: • The Mayor’s Transport Strategy (Transport for London, July 2001) • Lambeth Local Implementation Plan

5.12 Lambeth is producing a borough-wide Design Guide for street improvements which

will be available from late 2009. 5.13 Improvements should also take into account guidance produced by the South Bank

Employers’ Group: • South Bank Streetscape Design Guide (SBEG, 2004) • South Bank Urban Design Strategy (2002)

5.14 In addition to projects in the Lambeth Local Implementation Plan (LIP), a list of

public realm projects has been agreed with local stakeholders. The current list of projects is set out in Appendix A and will be used as a public realm project bank for s106 planning obligations, together with those in the LIP. The list of projects will be kept under review and updated regularly, separate to the SPD process, and other projects will be supported and implemented as opportunities arise.

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Fig 5B – Public realm projects

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List of public realm projects – as at April 2009 Public Realm Project

1 Waterloo Bridge 2 Westminster Bridge 3 Spine Route expansion 4 Stamford Street 5 York Road 6 Lambeth Palace Road 7 Baylis Road 8 Hercules Road 9 Cornwall Road 10 City Square 11 Lambeth Road 12 Viaduct streets/ Founders Place 13 Jubilee Gardens 14 Waterloo Place 15 The Island Site 16 Play area by London Television 17 Emma Cons Gardens/Webber Street 18 Hatfields 19 Lower Marsh Regeneration Project 20 Riverside Walk 21 Green route LWT/IBM 22 Elizabeth House

Sites with planning permission including significant public realm improvements

23 Doon Street 24 County Hall Island site (Westminster Bridge Road) - peninsularisation 25 Shell

Area-wide projects Legible London Light at the End of the Tunnel

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5.2 Public realm guidance 5.2a General 5.15 The following section provides guidance in relation to the public realm within

Waterloo. The aim of this guidance is to create and maintain an environment that has the following qualities: • Clean and safe • Contemporary • Uncluttered • Durable • Well maintained • Accessible • High quality • High degree of consistency, and • Relates to the surroundings and heritage.

5.16 Developers are encouraged to incorporate these principles and the following

guidance into their plans at an early stage, so that the treatment of the public realm is seen as an integral part of creating well-designed and successful urban places.

5.2b Streets and routes 5.17 More space and priority will be given to pedestrians in managing road space. Links

will be improved between key areas to provide more attractive and convenient routes for walking.

5.18 Fig 5A shows a key pedestrian network through Waterloo. This aims to clearly

identify priority routes for pedestrians, linking attractions, the station and community buildings between which there are the highest pedestrian flows. These routes will be made more attractive for pedestrians through giving more priority over traffic, better paving and street furniture and creating more active frontages. Routes should be continuous and at street level – vertical detours such as subways and footbridges should be removed, and excessive and unnecessary guard railing removed.

Waterloo Station 5.19 A key priority in improving the station is to maximise pedestrian access at

street/ground level, and eventually bringing the main passenger concourse down to street level. Access should be created from all directions allowing for new links between the areas presently cut off from each other by the station and tracks, especially between Lower Marsh and the South Bank.

5.20 Service access to the station will continue to be needed and must be retained in

some form, but the current loop around the station causes conflict with pedestrian movement. To further improve connectivity and continuity of pedestrian routes, Lambeth will encourage service roads to be removed or replaced where opportunities arise to provide alternative access. Shared surface streets could be used to create a more pedestrian friendly environment around the station.

5.21 Active frontages should be maximised where the station meets the street.

Improving the approach to the Victory Arch is a priority as this is the main station

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entrance and this space needs to integrate with improvements to Elizabeth House and the City Square project.

Better Pedestrian Links to the Riverside Walk 5.22 The creation of improved pedestrian linkages between Riverside Walk and

Belvedere Road / Upper Ground will be encouraged. These new linkages, which will be achieved through public realm improvements and the encouragement of live frontages, will help to draw some of the current footfall and activity from Riverside Walk into the heart of Waterloo. There are also opportunities for pedestrian only linkages within the secondary road / pedestrian network.

5.23 A major missing link that needs to be provided is between the western side of the

station and Hungerford Bridge. At present this is a raised walkway from the station to the Shell Centre and then there is no clear route to the bridge. This needs to be replaced by a street level exit from the station on the western (York Road) side, a new street level route through the Elizabeth House site, a street level route through the Shell centre and a new route through what is now Hungerford Car Park. Each component will be delivered separately through site specific schemes (see chapter 7) but Lambeth will require the landowners and developers to work together through a masterplan to create a coherent and high quality route.

Improvements to the railway arches 5.24 The ‘Light at the End of the Tunnel’ project aims to turn the viaduct arches in

Waterloo from problems into assets by putting them to active uses or showing how the could be safe and attractive routes. Making the railway arches more welcoming and permeable will help to reconnect the area and create a more pedestrian friendly environment, eg through imaginative lighting and live frontages. Many arches have already been improved, eg under Waterloo East station, but many remain, several of which are long and more difficult to deal with. Pedestrian routes between Lower Marsh and north/west of the railway are in particular need of improvement. Light at the End of the Tunnel provides useful analysis and further project ideas.

Traffic management 5.25 In traffic management schemes, the needs of pedestrians, cyclists and public

transport users will be prioritised in order to create streets that are safe and attractive. Design must be sensitive to both the requirements of traffic and highway engineering standards as well as aesthetic considerations. Consideration must also be given to integrating bus services, including bus standing, stops and priority measures.

5.2c Creating places 5.26 New public realm and spaces will be encouraged as part of development proposals

and street enhancement works. Waterloo City square 5.27 A key proposal to transform Waterloo is to address the maze of underpasses

around the IMAX and create a new City Square. The project has the support of local stakeholders and aims to radically improve the roundabout and connecting routes for pedestrians to create a new public space. It also includes Waterloo Road as far south as the junction with The Cut and Baylis Road. It will be a very

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significant intervention which will create better links between the station and the river, and also for east/west movements.

5.28 Improvements to Waterloo Road will allow for a more pedestrian and cycle friendly

environment and safer interchange between bus services and the station. The bus stops at Tenison Way and Mepham Street together form an integrated bus station of sorts, and improved passenger interchange and pedestrian movements will need to be provided as part of the City Square project.

5.29 The vision for the Waterloo City Square is to create a radically improved public

space at the heart of Waterloo and to reconnect Waterloo station with the surrounding area. The project aims to:

• Provide a unified and quality public environment worthy of the area’s national and international significance.

• Enhance connections and access to/from the South Bank to and within the IMAX roundabout and Waterloo Road, the Riverside and Waterloo Station.

• Improve public safety and walking routes to the IMAX and Waterloo Road by delivering the potential for pedestrian movement at grade.

• Identify any opportunities for development of spaces including the undercrofts for commercial or cultural purposes or for public enjoyment.

• Improve and promote sustainability and energy efficiency • Meet the highest standards of accessibility and inclusion for all people

regardless of disability, age or gender. • Complement the surrounding developments and their relationship to the

public realm. 5.30 The project will allow for phased delivery to ensure that improvements can be

delivered over time. Projects to create improved places 5.31 Other projects to create new or significantly improved places are:

• Elizabeth House – redevelopment of the 1960’s office block on York Road in three blocks, with new routes between the station and York Road, spaces between the buildings and improved space outside the Victory Arch.

• Jubilee Gardens – a scheme with planning permission to redesign the open space to create a high quality park for central London.

• Emma Cons Gardens – reconfiguring the open space opposite the Old Vic to create a more attractive gateway to Waterloo and a space suitable for community events.

• Lower Marsh Regeneration Project – poor quality environment that would benefit from resurfacing, new street furniture and better market management to create an attractive shopping street. With no through traffic, a sense of history and many independent shops, this could be a very pleasant and vibrant place.

• Founders Place – a redevelopment scheme with planning permission including improved routes through Royal Street and Carlisle Lane to provide attractive routes between Lower Marsh, the hospital and Archbishops Park.

• Doon Street – new square and pedestrian link from Waterloo Bridge as part of approved development scheme.

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5.2d Active frontages 5.32 Key public spaces and routes should be overlooked by active frontages. 5.33 In order to ensure the creation of a high quality public realm it is important that

buildings have their fronts and main entrances oriented towards the street to contribute to a lively and attractive street scene. Frequent doors and windows will assist the overlooking and passive supervision of the street.

5.34 Policy 19 of the UDP encourages active ground floor uses, such as retail services,

restaurants, cafes, pubs, health and social facilitie on main pedestrian routes. Such uses help create a lively, safe and attractive atmosphere. Active frontages are particularly important at the proposed City Square, Waterloo Road, York Road, Stamford Street, Lower Marsh, The Cut, the Riverside Walk, but also Belvedere Road and Upper Ground.

5.2e Public realm quality 5.35 Public realm should be high quality and use a consistent design approach. Street

clutter should be removed. 5.36 The careful design, construction and maintenance of streets and footways within

Waterloo is important to ensure the creation of a high quality public realm and a Design Guide for Lambeth will be produced in late 2009. Consistency of approach to the design of streets, including footway and carriageway surfaces, should be ensured. This will help to improve the appearance of the area and aid maintenance procedures.

5.37 Generally a restrained approach should be adopted using a limited palette of high

quality materials. Within sensitive areas, such as conservation areas, the restoration of existing good quality paving will be encouraged wherever possible.

5.38 The use of tactile paving in a wide range of colours and textures can be obtrusive.

Care should be taken to use these surfaces sparingly. Alternatives, such as stainless steel studs/mono-coloured tactile paving should be considered in conservation areas.

5.39 The quality of paving on streets with a high pedestrian flow will be particularly

important. Surface continuity will be ensured by encouraging utility companies to use recessed covers on pavements, and by putting in place strong management and maintenance procedures.

5.40 Removing street clutter significantly improves the appearance of an area and will

be given priority in street work projects. Consideration should be given to the mounting of signs on walls and lampposts. Guard-railing should be removed, unless there are no other appropriate traffic management measures, or where they are considered essential for pedestrian safety. Where there is no alternative, guard-railing should be understated.

5.2f Street Furniture 5.41 Lambeth will promote quality, simplicity and the careful consideration of context in

the provision of street furniture.

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5.42 Street furniture across the Waterloo area should be coherent and coordinated in

accordance with the SBEG Streetscape Design Guide. All street furniture (including seating, litter bins, public telephone boxes and bollards) should be:

• Of simple, high quality and durable design; • Co-ordinated in terms of materials and colour; • Designed to discourage anti-social behaviour such as rough sleeping

and skateboarding; • Respond to the needs of disabled people; and • Be located in a position that does not impede pedestrian flows or

pedestrian desire lines, but where demand is highest. 5.43 The design of street furniture should respond to its local context. For example,

within historic areas furniture should be understated and replicate, where appropriate, original furniture. Within other parts of Waterloo, especially Upper Ground / Belvedere Road, there is the potential to encourage more contemporary designs, reflecting the character and function of the street.

5.44 Street clutter should be reduced. The use of bollards and signs should therefore

be minimised. Where possible, services could also be co-located. 5.45 The provision of transport related street furniture should adhere to the same

principles. Bus shelters, for example, should be well designed and constructed using high quality and durable materials. The use of advertising on bus shelters, particularly within historic parts of the Waterloo area, should be carefully considered and will be resisted close to sensitive landmarks.

5.46 Secure cycle parking should be provided in places with highest demand –adjacent

to cycle routes, transport interchanges, cultural attractions, public buildings and major education facilities. It is important that their siting does not create unnecessary street clutter or block pedestrian desire lines. Cycle parking provision in developments should exceed the standards set out in Policy 14 of the Lambeth UDP.

5.47 CCTV cameras should be mounted on buildings and walls to minimise visual

intrusion wherever possible. Where sight line requirements dictate that cameras need to be installed on poles, they should double-up with lighting or other items of equipment, to minimise clutter.

5.2g Tree planting and landscaping 5.48 Tree planting and landscaping will be encouraged where appropriate. 5.49 Trees and landscaping as a part of enhancement schemes can help to soften the

hard landscape and provide visual and environmental amenity. Careful consideration must therefore be given to the location and type of trees within the Waterloo context. Opportunities for tree planting are constrained by the density of underground services but appropriate landscaping will be encouraged to introduce more greenery and soften the environment. The planting of street trees should allow adequate space for accessible bus stops and ensure overhanging branches do not present an obstacle to double decker buses.

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5.50 Trees and landscaping should reflect the function and scale of streets and open

spaces, as well as existing landscaping within the surrounding context. Tree-planting in certain spaces can create attractive gateways to the area, while tree-lining certain routes could create boulevards, such as at York Road and Stamford Street. Additional tree planting could create a sense of a green link at Hatfields.

5.2h Wayfinding and Information 5.51 Clear and attractive wayfinding information should be provided to help people walk

easily to their destination, including the implementation of Legible London. 5.52 Waterloo is visited by many tourists who do not know the area, and it is also a

place that can be difficult for local people to find convenient routes. The provision of information which enables people to move easily around the area is therefore important.

5.53 The ‘Legible London’ project is designed to address this by improving signage and

wayfinding in central London and is to use the South Bank as one of its pilot areas. This project will provide information on how to reach key destinations and street maps in a format being used consistently across central London.

5.54 Signposts and information systems should be designed to reduce street clutter and

visual intrusion to the absolute minimum. Consideration should be given to wall mounted information points, as well as the consolidation of existing and new signposts. Signs and other features should comply with SBEG’s Streetscape Design Guide.

5.55 It is important that information points are well located. Suitable locations include:

• Key gateways into the area; • Public transport interchanges (Waterloo station); • Key public buildings; and • Along busy pedestrian routes

5.2i Lighting 5.56 Architectural lighting of buildings will be encouraged to further define a sense of

place, enhance the appearance of the area and ensure that routes are safe and well lit at night.

5.57 Making an urban space attractive and safe to use at night is difficult but has been

successfully achieved on the riverside through an appropriate mix of uses and good lighting. Guidance on good lighting is set out in SBEG’s Urban Design Guide.

5.58 Imaginative lighting can be used for artistic and aesthetic effect, and can help to

improve the visual interest of a place. Landmarks should be marked out for specialist treatment, eg the National Theatre, but lighting schemes should promote a unified whole. The requirements to avoid light pollution and ensure energy efficiency will be taken into account.

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5.59 Street lighting should respond to the different functions of paths and routes, but maintaining continuity of lighting along the whole route. Equipment will vary, for example, depending on the width of traffic-carrying streets, as well as their function. Lighting within public open spaces will also be an important consideration and will serve two functions – lighting should be both imaginative (in order to improve the visual amenity of the area) and practical (in order to improve the sense of security within the area).

5.60 All lighting equipment should be designed to minimise visual intrusion and should

be of a simple design with high quality materials. Where possible, consideration should also be given to the use of wall mounted lighting on building facades.

5.2j Parks and open spaces (see Fig 5C) 5.61 The network of green open spaces within the Waterloo area perform an important

role as areas where people can relax, play, learn and enjoy. The council will protect and enhance open spaces in consultation with local stakeholders and encourage a network of links to connect these spaces.

5.62 Given the limited amount of open space and increasing numbers of people putting

pressure on them, it is important that these open spaces are co-ordinated to ensure that they perform complementary roles that reflect their size, location and catchment population. Landscaping and planting are an important way in which the character and function of open areas can be strongly defined and portrayed. Plant species must be encouraged that contribute to the ecology of the space.

5.63 The creation of more amenity space is a priority for the area and will be

encouraged as part of development schemes either on site or off-site through pool s.106 contributions. A key proposal for the area is the extension of Jubilee Gardens onto Hungerford Car Park. Local needs for sports recreation will need to be provided either at Archbishops Park or elsewhere in north Lambeth through pooled s.106 contributions.

5.64 Further work will be carried out in considering opportunities for developing

networks of routes and spaces, particularly drawing on work carried out by the Waterloo Open Spaces Partnership (WOSP).

5.2k Public art 5.65 Public art will be promoted as part of development proposals to define and

enhance public realm. 5.66 Policies 30 and 57 encourage the provision of public art as an integral element to

any major development. A proportion of the art should be free standing from the development or independently commissioned art work and the Council will encourage pooled contributions to art works in keeping with the public realm of the area (rather than linked to the development site).

5.67 Art in the public realm should provide unique installations that add to the South

Bank’s status as an international centre for the arts or help spread cultural activity and interest south of the railways. Public art can also be a good way to add to the attractiveness of spaces, for example tunnels and arches under the railways.

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Fig 5C Parks and open spaces

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Chapter 6: Sustainable Design and Construction

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Sustainable Design and Construction 6.1 Lambeth will encourage development that is sustainable in terms of waste, water,

energy and transport to meet the needs of the current and future commercial residential populations.

Policy Context 6.2 The London Mayor’s energy strategy aims to put London on a path to achieving a

60 per cent reduction in CO2 emissions by 2050, relative to 2000. 6.3 As part of this strategy, London Plan (2008) Policy 4A.4 requires an assessment of

the energy demand and carbon dioxide emissions from proposed major developments, which should demonstrate the expected energy and carbon dioxide emission savings, including the feasibility of CHP/CCHP and community heating systems. This policy applies the Mayor’s energy hierarchy to new development – using energy efficiency measures, CHP/CCHP, and then renewable energy as part of an overall approach to reduce C02 emissions. Policy 4A.7 of the London Plan requires developments to achieve a reduction in carbon dioxide emissions of 20% from on site renewable energy generation (which can include sources of decentralised renewable energy) unless it can be demonstrated that such provision is not feasible.

6.4 Lambeth’s Unitary Development Plan promotes sustainable forms of development:

• All new development will need to incorporate sustainable design and construction (Policy 35).

• All major development (above a threshold of 1000m² or 10 dwellings) will be required to incorporate equipment for renewable power generation so as to provide a minimum of 10% of their predicted energy requirements (UDP Policy 34). This is a minimum standard and compliance with London Plan policy 4A.7 will generally be expected.

• Increased use of renewable energy is promoted and should be incorporated in larger sites (Policy 53b).

6.5 Further guidance is set out in Lambeth’s SPD on Sustainable Design and

Construction. Development Guidance/ Requirements 6.6 The large scale development opportunities and scope for high density development

in a concentrated area creates particular opportunities to incorporate the principles of sustainability into the next generation of buildings in Waterloo.

Principle 1 – Minimise energy consumption 6.7 Buildings should be designed to minimise energy consumption by maximising

passive heating and cooling. 6.8 The need for active cooling systems should be reduced as far as possible through

passive design including natural ventilation, appropriate use of thermal mass, external summer shading and vegetation on and adjacent to developments. The

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need for active heating should be minimised through employing efficient built forms, materials, orientation and layout (passive solar gain). Furthermore artificial lighting should be reduced with adequate daylight and sunlight being achieved throughout the living and workspace areas of the building.

6.9 Sustainability assessments for new development proposals should take into

account the embedded energy in existing buildings. The Council will encourage the retention, reuse and recycling of building materials.

Principle 2 – On-site renewable energy 6.10 All major developments are required to incorporate on-site renewable energy

generation so as to provide a minimum of 10% of the site’s predicted energy requirements (Lambeth UDP) and developers are expected to achieve a reduction in carbon dioxide emissions of 20% from on site renewable energy generation unless it can be demonstrated that such provision is not feasible (London Plan).

6.11 All developments should demonstrate that their heating, cooling and power

systems have been selected to minimise carbon dioxide emissions. In order to meet this target Lambeth will encourage a mix of renewable energies within the opportunity area. The London Renewable Energy Toolkit provides useful guidance (although Lambeth now discourages the use of biomass). S106 agreements will be used to ensure compliance with the policy for the lifetime of the building.

6.12 Where the required reduction from on-site renewable energy is not feasible within

major new developments, a financial contribution will be sought to an agreed borough-wide programme for carbon dioxide emissions reduction.

Principle 3 – Combined cooling, heat and power and community heating. 6.15 Major development, where feasible, should incorporate combined heat, cooling and

power and community heating. 6.16 Policy 4A.6 of the London Plan states that developments should demonstrate that

their heating, cooling and power systems have been selected to minimise carbon dioxide emissions. Developments should evaluate combined cooling, heat and power (CCHP) and combined heat and power (CHP) systems and where a new CCHP/CHP system is installed as part of a development, examine opportunities to extend the scheme beyond the site boundary to adjacent areas.

6.17 District CCHP/CHP systems offer the best practical means to make more efficient

use of energy and reduce carbon dioxide emissions. They also offer scope for existing homes and businesses to benefit from affordable heating and to achieve CO2 emission reductions.

6.18 A strategic feasibility study of energy supply and CCHP options for the South Bank

area was completed in February 2009. The study was commissioned by the South Bank Employers Group, and supported by the LDA, and sets out the technical, economic and environmental viability of a district energy network. It identifies how a CCHP network could be developed in the area providing a means for both new and existing development to achieve substantial carbon emission reductions. More

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detailed feasibility work will be carried out and developers will be encouraged to consider how they can contribute to delivering the network as part of reducing their CO2 emissions. The Guy’s and St.Thomas’ NHS Trust is already installing a CHP system at St.Thomas’ hospital for the complex of buildings there.

6.19 Where there are a few large development sites close together, the separate

planning applications should consider using a centralised system for all those sites. Where this cannot be delivered in one phase of development due to timing or separate ownership, passive provision to allow for future connection to a wider decentralised network should be built into the development proposals to allow for its eventual delivery.

Principle 4 – Connecting to district energy networks. 6.13 New buildings within the SPD area should be equipped with adequate fixtures or

design to allow for future expansion of renewable technologies and integrated networks of waste and energy management.

6.14 All proposals should be configured to enable developments, where possible, to

receive power, heating and cooling from a district power heating and cooling systems or networks of systems. Lambeth will encourage developers to facilitate and connect to the energy network identified by the 2009 SBEG study and to work with SBEG and the LDA to incorporate connection into their designs at the earliest stage. Further information is available from SBEG.' Where a local district heating network incorporates heat derived from renewables, this would offset the requirement for on-site renewables.

Principle 5 – Green roofs 6.20 Green roofs and or walls should be incorporated within new buildings where

appropriate. 6.21 Green roofs can improve the local microclimate, absorb noise and create space for

amenity or biodiversity. Native plants and species should be used where possible as they generally have lower maintenance needs and can enhance the local biodiversity. Waterloo has little green open space and development should maximise the use of green roofs to provide new amenity and wildlife space.

Principle 6 – Sustainable Water Management 6.22 Sustainable Water Management should be incorporated within all development in

line with the Mayor’s Drainage Strategy and the Mayor’s Water Strategy. 6.23 London Plan Policy 4A.14 promotes sustainable drainage and policy 4A.16 aims to

protect and conserve water supplies and resources. Sustainable Urban Drainage Systems (SUDS) should be employed where appropriate. Porous paving should be utilised where possible in order to maximise ground water infiltration and minimise surface run off. Policy 4A.16 of the London Plan also sets a maximum water use target of 105 litres per person per day for residential development.

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Principle 7 – Flood Risk Management 6.24 The whole SPD area lies within the high risk Flood Zone 3a with tidal influences

from the River Thames, but is protected by flood defences and the Thames Barrier. Risks still exist in the event of a failure of flood defences or other forms of flooding.

6.25 The Council will work in partnership with the Environment Agency to manage and

mitigate flood risk. Development proposals within flood risk areas are required to demonstrate how they will mitigate and manage flood risk through appropriate measures. Flood Risk Assessments should accompany planning applications in Flood Zone 3a. Development must comply with the exception tests in national policy in Planning Policy Statement 25 (Flooding) and with London Plan policy. On sites adjacent to the river Thames, remediation and improvements to the flood defence walls will be required where these are in poor condition. When developing within 16m of the tidal flood defence, developers need to make a statutory application to the Environment Agency for land drainage consent. Measures to mitigate flooding from groundwater and sewers should be included in development proposals for which this is a risk.