London Borough of Sutton Local Development Framework

Supplementary Planning Document

The North Sutton Sites

Planning Brief

Environment and Neighbourhoods

September 2012

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Planning Brief North Sutton Sites (September 2012)

Planning Brief

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Contents Executive Summary

ONE Introduction

Background

Purpose

Status

Structure of the Document

TWO Location and Description of the Brief Area

Site Description and Wider Context

Ownerships/Aspirations

Previous Regeneration Policies and Proposals for the Village Quarter

New Development & Other Site Allocations within the Village Quarter

Key Conclusions and Issues

THREE Planning Policy Framework

Introduction

National Policy Context

The Development Plan for the LB Sutton

Key Policy Conclusions

FOUR

Land Use Considerations and Objectives

Key Land Use Requirements

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FIVE Urban Design Analysis and Objectives

Introduction

Heritage Issues

Urban Design Issues

Key Urban Design Objectives

Other General Housing Requirements

SIX Access, Circulation and Servicing Analysis and

Objectives

Policy Context

Existing Access, Linkages and Connections

Existing Delivery/Servicing Arrangements

Existing Parking Arrangements

Future Public Transport

Current Improvement Schemes/Initiatives

Key Objectives

SEVEN Services and Utilities Infrastructure, Natural Resources

and Site Drainage

Current Gas Operations

Contamination

Services and Utilities Infrastructure

Natural Features

Site Drainage

EIGHT Sustainability Objectives

NINE Development/Movement Proposals

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Introduction

Development Proposals

Public Realm Enhancements

Indicative Access/Movement Proposals

Development Constraints if Gas Holders are not Decommissioned

TEN Application Requirements, Planning Conditions &

Planning Obligations/CIL

Application Requirements Planning Coniditions

Planning Obligations/CIL

ELEVEN Implementation & Delivery

Implementation

Delivery

Appendix 1: Tram Tracking Alignment

Glossary

Background Documents

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FIGURES: Figure 1: The North Sutton Sites Boundaries Figure 2: Current Land Uses Figure 3: Sutton Town Centre Quarters and Primary Shopping Area Figure 4: Isochrones from the North Sutton Sites Figure 5: Land Ownerships Figure 6: Historic OS Maps Figure 7: Heritage Assets in the Vicinity of the Brief Area Figure 8: Existing Morphology Figure 9: Urban Design Analysis Figure 10: Urban Design Objectives Figure 11: Access and Movement Analysis Figure 12: Access and Movement Objectives Figure 13: Public Transport Improvements Figure 14: PADHI Distances Figure 15: Contamination: History & Remediation Figure 16: Services & Utilities Figure 17: Indicative Access/Movement Proposals

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Executive Summary

This Brief provides a planning and design framework to North Sutton Sites (the Sites) comprising the Sutton Gas Holders, Zurich House, Centerlink House, the Magnet showroom and other smaller retail units, and, a car workshop.

The Sites are allocated as Site STC N1 in the Site Development Policies DPD (the Sites DPD). The allocation indicates that, given the complexity of landownerships and the proposed scale and mix of development, a planning brief should be prepared in order to provide guidance over the redevelopment of the Sites. The National Planning Policy Framework (NPPF) requires plans to be flexible to adapt to rapidly changing circumstances and accordingly, in the Sites DPD (Policy DM41, Paragraph 3.326), the council is committed to monitor the

set out in the Core Strategy, particularly in the context of changing economic circumstances. Since the Examination into the Sites DPD the principal landowner, LXB RP (Sutton) Ltd (LXB) has highlighted a number of issues regarding deliverability and viability which may require a change in quantum and uses of development allocated and these issues have been considered in the preparation of this Planning Brief.

Government guidance in the new National Planning Policy Framework is clear that there should be a presumption in favour of sustainable development, and, for plan making, this means local planning authorities should positively seek opportunities to meet the development needs of the area. C every opportunity to support, and not act as an impediment to sustainable economic growth. Accordingly, the council has been working collaboratively with LXB in order review the original allocation and to set out revised objectives to help with the consideration and determination of future planning applications. In particular the work on the preparation of the Brief has looked specifically at:

How best to support and promote Sutton town centre as a Metropolitan Centre and how to achieve renewal of the Sites;

Land use and quantum of comparison and convenience retail development1;

Scale and massing;

Transport and movement, including satisfactory access and linkages to the rest of the High Street; and

High quality sustainable design and urban environment.

Viability issues have been looked at in the round but will have to be addressed in more detail as part of any planning application.

The Brief summarises all the issues and a key part of this has been the need for the council to balance development proposals which achieve its wider objectives whilst securing sustainable economic growth. The Brief also sets out a policy, urban design and movement analysis; identifies all the development constraints and identifies possible development and movement proposals. The revised key objectives and land use requirements for the Sites are set out below.

Key Objectives for the Brief:

1 Comparison Retail is defined as shopping for things like clothes, household and leisure goods not bought on a regular basis. Convenience Retail is defined as shopping for

everyday items like food, drink and newspapers.

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Secure the redevelopment and renewal of the Sites, which improves the centres vitality and viability, which attracts new investment into Sutton town centre, and, which acts as a catalyst for sustainable renewal of the wider Village Quarter area;

Secure the decommissioning of the Gas Holders;

Develop an identity for the Village Quarter;

Secure flagship sustainable developments

Design the Sites to secure effective integration with and access to the High Street to the south;

Increase the permeability of the Sites, remove barriers to movement and give priority to pedestrians and cyclists.

Create an attractive, vibrant and safe environment and a significant public space which provides opportunities for social engagement and enjoyment of the area;

Safeguard the route for the London Tramlink extension;

Deliver decontamination and remediation of the Sites;

Seek to reduce social inequalities and promote community cohesion;

Provide local employment opportunities to be secured through agreement; and

Secure the delivery of soft landscaping and green infrastructure as appropriate as part of the holistic and sustainable approach to the redevelopment.

Key Land Use Objectives:

Delivery of a residential-led redevelopment of the Sites, in line with Strategic Objectives set out above, unless it can be demonstrated through a robust viability testing that such a scheme is not viable or deliverable. Any scheme must demonstrate how the amount of residential development has been optimised;

Provision of an appropriate mix of dwelling sizes and tenures;

Development of a mix of other town centre appropriate land uses including retail, commercial leisure and other employment uses such that the proposals will create a vibrant place which contributes to the attractions of Sutton as a Metropolitan centre and therefore increases trade draw;

Provision of a mix of retail developments which enhance the retail offer of Sutton town centre. In line with the Sites DPD, opportunities should be taken to exceed the quantum of retail floorspace over the allocated 7,700sqm. ;

Development of community facilities e.g. private tuition centre/crèche/nursery;

Creation of a public square which will bring people together and provide an opportunity for recreation; and

Development of a high quality public realm (which includes the streets, squares, parks and open spaces).

The Brief has been approved as a Supplementary Planning Document and is therefore a material planning consideration in the determination of planning applications relating to the redevelopment of the Sites.

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Introduction Our vision [for Sutton] is to create a sustainable suburb in London

(Sutton Strategy, 2008-2020)

main focus for the development of high quality commercial, residential and cultural facilities. The town centre will also benefit from improved public transport

Background 1.1 Sutton town centre is one of only four metropolitan centres in South London and consequently has a wide retail catchment and offers

significant employment, service and leisure functions. However there is the need for enhancement of the retail offer, the mix of town centre uses and the public realm in order to mainta the other Metropolitan Centres in South London (Bromley, Croydon, and Kingston) and other retail centres in the south east including Epsom, Reigate and Guildford. Consequently, Core Planning Strategy (CPS, 2009)2 is seeking to enhance the strategic role of Sutton town centre in South London.

1.2 In order to bring about transformational change in Sutton, the adopted Site Development Policies Development Plan Document (the Sites DPD, March 2012) identifies a number of site allocations for redevelopment (where development is both feasible and desirable in the short to medium term) including the North Sutton Sites (the Sites) which are the subject of this Brief (see Figure 1). The Sites were identified because of their potential for more intensive development and because they provide a significant renewal opportunity in north Sutton.

1.3 Planning law requires that applications for planning permission must be determined in accordance with the development plan and the

National Planning Policy Framework (the NPPF) emphasises that the development plan is the starting point for decision making. The Site Allocation identifies the need and capacity for the redevelopment of these Sites and indicated that given the complexity of site ownerships and future scale and mix of development a planning brief should be prepared. Early discussions with LXB identified a number of significant issues which would affect the deliverability of the redevelopment of the Sites and therefore it was identified that there was a need to explore different development scenarios from those set out in the development plan. The NPPF is clear that

2 CPS Policy PMP 6 identifies Sutton town centre as a Centre for Growth and Regeneration

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development plans need to be flexible to adapt to rapidly changing circumstances and this approach is reflected in the amplification to Sites DPD Policy DM41. Whilst the council may therefore have to review allocations, either in the light of changing policy or economic circumstances, it is clear from Paragraph 3.326 that redevelopment should still meet the overall Strategic Objectives of the Core Strategy.

1.4 Throughout the preparation of this Brief, there has been ongoing discussion with the landowners including Southern Gas Networks and

LXB Retail Properties Plc in order to understand site constraints, deliverability issues and to help secure their aspirations (which are set out in detail in Chapter 2) whilst achieving a successful comprehensive redevelopment of the Sites which meets wider town centre objectives.

Purpose 1.5 This Brief:

Ensures that any development supports the Vision for Sutton town centre Metropolitan centre;

Coordinates development, transport and public realm improvement strategies in order to realise a comprehensive regeneration of this part of the Village Quarter in line with the urban design principles for this Quarter3;

Provides a planning framework for the redevelopment of the Sites in the context of planning, urban design, accessibility issues and the aspirations of landowners, for development control purposes. It does not present detailed proposals which must be prepared having regard to the principles set out in the Brief and must be the subject of any planning application;

Ensures that development proposals on individual sites achieve their full development potential and do not prejudice development proposals on other sites. Sites, given the complexities of decommissioning the gas holders the objectives for the development of the eastern part of the site may progress alone;

Promotes exemplar high quality design and sustainability measures for any redevelopment which would be required in line with 4 and in order to secure the right statement

change mitigation/adaptation objectives;

Identifies the range of potential benefits the council may be seeking from future development; and,

Provides certainty for landowners and developers over the quantum of different uses acceptable to the council in the redevelopment of these sites.

3 As set out in the Appendices to the Sites DPD

4 Core Policy PMP6 Sutton Town Centre

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Status 1.6 This Brief has been approved as a supplementary planning document (SPD). It is in general conformity with the policies of the NPPF,

the London Plan and , and, in particular, supplements Core Policy PMP6 regarding the promotion and regeneration of Sutton town centre. It provides the framework to consider alternative development scenarios subject to robust evidence, including viability testing, being presented to justify a departure from current adopted policies for the site.

Structure of the Document 1.6 Chapter 2 describes the area covered by the Brief, identifies landownerships and sets out relevant planning history; Chapter 3

summarises the planning policy framework; and Chapters 4 to 8 set out the land use considerations; urban design analysis and objectives; circulation and movement analysis and key objectives; site constraints including contamination issues, existing service and utilities infrastructure; and, sustainability objectives.

1.7 Chapter 9 sets out the development and movement proposals for the Sites, identifying the possible quantum and range of uses and

access arrangements. 1.8 Chapter 10 identifies the range of planning obligations, likely contribution Community Infrastructure Levy (CIL) and the

local CIL, and, identifies other legal requirements, and, Chapter 11 sets out in general terms how the council expects the objectives of the Brief to be delivered.

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Figure 1: Map of boundaries of the North Sutton Sites

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TWO

Location and Description of the Brief Area Site Description and Wider Context 2.1 This Brief covers approximately 2.5 hectares (6 acres) of land (the Brief area) in the north of Sutton town centre. It also represents nearly 90%

of the total land area of all the Site Allocations in the Village Quarter and represents a third of the total land area of this Quarter. Accordingly, the redevelopment of these Sites will make the most significant contribution towards meeting the land use principles and urban design objectives for the Quarter.

2.2 Within the Brief area there is a mix of commercial land uses, areas of public realm and areas for parking, servicing and access. Figure 2 shows the current land uses, (which are described in more detail below), and, the context of the site.

2.3 The western part of the site is currently occupied by two large operational gas holders (which, when at full capacity, can be the equivalent of a

5 storey building) and associated buildings and infrastructure. Within the boundary of the Gas Holder Site is a small building and an area of adjoining land which, in the 1990s, were granted planning permission for use as the office of Sovereign Automotive dealing with the storage of cars awaiting repair5. The Victorian Gas Holder lies, at its nearest point, only 4m from the rear gardens of properties on Vale Road. Dex House, a two storey Victorian building, and the two storey Fabric World building lie to the south of the site and face onto Crown Road. The vacant offices of Zurich House, the former Eagle Star headquarters, dominate the eastern half of the site. It comprises a 1960s ten storey office block which sits over two storeys of retail units, and, the associated five storey car park sits to the west of the building. The Magnet kitchen store dominates the north-eastern corner of the Brief area, and, whilst the showroom offers an active frontage onto the High Street, the warehouse creates a bulky and dead frontage onto Vale Road.

2.4 The west of the Brief area is bound by a footpath linking Crown Road and Vale Road/Bushey Road and to the west of this is the deck access

car park of Collingwood estate. The Collingwood Estate is a mixture of maisonettes and flats, including a sixteen storey block and is mostly managed by Sutton Housing Partnership although a number of the properties have been bought and are now in private ownership. To the south of the Brief area is the busy Crown Road, opposite which lies a non-descript poorly designed corner unit with retail (Halfords) at the ground floor and residential above. The High Street (B2230) lies adjacent to the eastern side of the Brief area, and, along with Crown Road, comprise a significant element of Sutton town centre gyratory6. To the north of the Brief area is Vale Road, a comparatively quiet, predominantly residential street comprising two-storey Victorian terraced housing, which marks the start of suburban Sutton which expands to the north.

5 Planning Application 96/41457/Ful

6 The gyratory is part of the network of Local Distributor Roads

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2.5 The North Sutton Sites are located in the Village Quarter of Sutton town centre. This Quarter is centred on a relatively poor secondary

shopping are The area incorporates a wide variety of uses, building forms and scales, and as such does not have a unified identity. While many of the shops and houses are small in scale, they are interspersed with larger footprint retail outlets. Notwithstanding this the northern part of this Quarter is characterised by the historic Green, an attractive open space marking

ally listed.

2.6 Illustration 1 sets out a photomontage of development on and around the site.

2.7 The core retail area7 lies over 300m8 to the south (comprising the pedestrianised High Street and the St Nicholas and Times Square Shopping

Centres with a number of national retailers including Next, Debenhams and Primark). Accordingly, the Sites are classified as Edge of Centre, notwithstanding that they lie within the Sutton Town Centre boundaries. A number of national multiple stores lie closer to the site including Matalan which is 40m to the south and Asda 95m to the south. Figure 3 identifies the boundaries of the Quarters and the boundary of the Primary Shopping Area.

2.8 Isochrones from the Brief area are shown on Figure 49. Sutton Station, almost at the southern end of the High Street is about 1.2km away

(about 15min walk), Sutton Common Station is 800m to the north (about 10min walk), and, West Sutton Station lies 900m (over 10min walk)to the west.

2.9 The High Street of Sutton town centre is characterised by a series of public squares/spill out spaces from the Station Gateway, the space at

the Cock Junction, Trinity Square, Zurich Place all the way to Sutton Green. The spaces at the Cock Junction and Trinity Square have been improved and there are proposals through the Sutton Station Brief to improve the Station Gateway. However, the redevelopment of these Sites represents the best opportunity to make significant improvements to the public spaces in North Sutton.

2.10 The nearest public open spaces to the Brief area are the Green (241m to the north), which includes a play area and informal seating; and

Collingwood Rec (c. 550m to the west) and Rosehill Park (nearly 900m to the north) which are defined as local parks which offer a variety of recreational functions. The Bushey Road allotment site lies about 400m to the north. Whilst the North Sutton Ward has slightly above average open space provision per 1,000 population (when compared against the Borough standard), this site lies within an area of deficiency in access to local parks.

7 Defined as the Primary Shopping Area - as shown on the Sutton Proposals Map.

8 All measurements are taken from the south-eastern corner of the draft Brief area

9 On the basis that 400m represents a 5 minute walk distance.

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Ownerships/Aspirations 2.11 Figure 5 shows the extent of land ownerships in the Brief area and, following ongoing discussion with landowners, the council has identified

their development aspirations which are summarised below. Southern Gas Network and the National Grid 2.12 Southern Gas Network (SGN) and the National Grid together own 1.14ha (c.11,400sqm) which represents just under half of the total Brief

area. SGN is a gas operating company who have an aspiration to see the gas holders removed in the medium to longer term. SGN has indicated that the earliest the holders can be decommissioned is 2014 and that the site is likely to take up to a year to remediate. The National Grid owns the portion of this site fronting onto Crown Road.

LXB Retail Properties (Sutton) plc (LXB) 2.13 LXB is the freeholder of Zurich House, Centrelink House and the Magnet site. Parts of the Zurich building are occupied on a short term lease.

The Magnet lease expires in 2016 and Magnet has indicated that the current site is too large for their current requirements although there is a continued desire to continue to operate a store in the local area.

2.14 Zurich House is subject to a covenant with the Gas Board regarding property development and implications that this would have on the Gas

Holders and if the sites are development separately then this would have to be taken into account in ay separate development proposals. Automax 2.15 This small site on Vale Road is currently run as a garage and it is understood that LXB will be able to secure the freehold of the site. London Borough of Sutton 2.16 London Borough of Sutton (LB Sutton) owns the freehold of Fabric World. LXB has now acquired the leasehold and it is understood that the

owners of the business have a desire to retire.

2.17 Due to the significance of the public real m in securing a successful comprehensive redevelopment of the Sites, the Brief area also includes all adjoining roads and footways which are maintained as public highway.

Previous Regeneration Policies and Proposals for the Village Quarter 2.18 In 2003 the council appointed consultants WS Atkins and CB Hillier Parker to produce a study setting out possible redevelopment strategies

for North Sutton including the then Town Centre Quarters of Angels End and Sutton Green Local Centre and the surrounding residential areas including the Benhill and Collingwood Estates. An Options Report was produced in September 2003 which looked at the future role of the North Sutton sites as part of the town centre and assessed the need/demand for additional town centre development, including retail, office and commercial leisure uses. Two core sites were identified as potential catalysts for regeneration: the Gas Holders and an area to the north of Marshall

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2.19 Atkins reviewed the viability and desirability of a range of options for redevelopment including making this area a cultural focus; a department

store anchored scheme; a large floorspace comparison retail scheme; and, investigated a significant office led re-development. The lopment of the

cultural focus scheme would be residential led with a hotel/conference facility and leisure/cultural facilities. A perceived benefit of this approach was the re-creation of a fine grain of development in line with the former pattern of streets and the pattern of streets to the north of the site. It was anticipated that any retail scheme would be supported by small to medium sized office units and residential development and would be served by a new road running north/south from the Crown Road/St Nicholas Way junction along the eastern boundary of the Gas Holders site before turning east to meet the High Street. The modified gyratory would enable an extension of the pedestrianised High Street and would facilitate public realm improvements. The aspiration was the creation of a destination retail offer complementary to the High Street. However, Atkins emphasises the need for the design of any store to be such that it would secure linked trips with the rest of the High Street.

2.20 As part of the initial work on the preparation of an Area Action Plan for Sutton the council commissioned Gillespies to produce

. Gillespies established clear boundaries, land use and urban design principles for the Village Quarter which have now been adopted in the Sites DPD.

New Development & Other Site Allocations within the Village Quarter The Burger King Site 2.21 The Burger King Site (STCN3: 330-332 the High Street) is allocated in the Sites DPD for residential-led mixed use development although

subsequently a planning permission has been secured for an 103 bed budget hotel (2011/65015/FUL) and it is anticipated that this scheme will be implemented in the next 12 months.

The Blockbuster Site 2.22 The Sites DPD also allocates the Blockbuster Site (STCN2: 341 The High Street) for mixed use development including retail, residential,

community and office uses. Development of Transport Options for Sutton Town Centre (Atkins, 2008) 2.23 Atkins was commissioned by the council to look at the alternative options for transport schemes particularly the extension of the London

Tramlink, to enhance the Sutton town centre over the next 10-15 years. The preferred option is to run the trams with the traffic along the gyratory to the south where a new public transport interchange can be constructed connecting buses, trains and trams. Atkins identifies a tram stop on St Nicholas Way, opposite Halfords, and a southbound stop on the High Street, opposite the Sites.

Key Conclusions and Issues 2.24 The following key conclusions can be derived from the understanding of the existing uses on and in the vicinity of the drat Brief area, the land

owners aspirations, and, from past planning history in the Brief and wider areas:

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Comprehensive redevelopment of the Sites would be desirable in order to achieve wider renewal objectives for North Sutton which is in a Priority Community Regeneration Area;

As the largest Site Allocation in Sutton town centre the redevelopment of these Sites must help meet the objectives of securing the status of Sutton as a Metropolitan town centre. However, considering the Sites comprises almost a third of the Village Quarter area redevelopment of the eastern Sites must meet the objectives of for the Village Quarter by securing a finer grain of development compatible with the human scale of the High Street and Vale Road and an appropriate mix of uses to secure activity;

Any redevelopment scheme must secure pedestrian connectivity with the Exchange Quarter to the south;

Any highway/access proposals must ensure the safeguarding of the route of the London Tramlink extension; and

Significant pedestrian improvements should be achieved to east/west permeability.

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Figure 2: Current Land Uses

Agenda Item 11 Page 228

Illustration 1: photomontage of the site and wider context

Agenda Item 11Page 229

Figure 3: Sutton Town Centre Quarters and the Primary Shopping Area

Agenda Item 11 Page 230

Figure 4: Isochrones from the North Sutton Sites

Agenda Item 11Page 231

Figure 5: Land Ownerships Please NOTE Figure 5 has been replaced. The correct landownership map is the first one, set out below.

Agenda Item 11 Page 232

Planning Policy Framework Introduction 3.1 This Chapter summarises the statutory planning framework and other material considerations relevant to the redevelopment of the North

Sutton sites and which have been taken into account by the council in the development of the Brief.

3.2 Currently, the development plan for the Boro 2011), the adopted Core Planning Strategy (2009) and the adopted Site Development Policies DPD (2012).

National Policy Context 3.3 At the national level the policy framework has recently undergone a radical change with the replacement of the majority of previous

government guidance set out in Planning Policy Guidance and Statements by the National Planning Policy Framework (the NPPF), which came into effect in March 2012. This Brief has taken the principles of the NPPF into account in its preparation.

3.4 The NPPF indicates that the purpose of the planning system is to contribute to the achievement of sustainable development with economic, social and environmental objectives. Whilst the NPPF indicates that the planning system should not act as an impediment to sustainable growth this should be set in the context of ensuring the continued vitality of town centres and local planning authorities should, amongst other things: promote competitive town centres that provide customer choice and a diverse retail offer and which reflect the individuality of the town centres; allocate a range of suitable sites to meet the scale and type of development needed in town centres; and should allocate appropriate edge of centre sites for main town centre uses that are well connected to the town centre where suitable and viable town centre sites are not available.

3.5 High streets at the heart of our communities: the Government's Response to the Mary Portas

Review (2012). A number of the Portas recommendations have been supported by the government and have relevance for this the future

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development of these Sites including: the need to establish Town Teams which can help focus support for making High Streets accessible and safe and the need for large retailers to support and mentor local businesses and independent retailers.

3.6 Furthermore, the government encourages development within existing urban locations where the emphasis is on locations accessible by public transport, walking and cycling. Development sites should provide a good level of access to jobs, education, shopping centres and local services in order to reduce car dependency and encourage the use of other travel modes.

The Development Plan for LB Sutton10 Regional Policy Context 3.7 The importance of town centres for the success of the suburbs and for London as a whole is stressed in the London Plan (2011).

town centres are seen by the Mayor as a key spatial priority providing access to a diverse range of activities, including retail, leisure and office space as well as housing, social imetropolitan centre11.

3.8 The London Plan is clear that if Outer London is to achieve its full potential, the issues of economic development, transport and other

infrastructure and quality of life must be looked at together. Mixed use development, the enhancement of the quality of the area, the provision of social infrastructure and sustainability will have to be considered together in order to achieve successful place making and address pockets of deprivation.12 In order to support and enhance competitiveness, the design of town centre schemes must also achieve a number of objectives, including: sustaining and enhancing the vitality and viability of the town centre; promoting access by public transport, walking and cycling; promoting lifetime neighbourhoods; urban greening and an enhanced public realm; and reducing delivery, servicing and road user conflict. Finally, retail and other town centre development must be in scale with the centre. (Policy 2.15)

3.9 Furthermore, The London Plan advocates that a proactive approach be taken to planning for retailing, particularly, bringing forward capacity for additional comparison goods retailing in Metropolitan Centres and supporting convenience retail in District, Neighbourhood and more local

ial Development Perspective and Annex 2 of the London Plan provides strategic guidance on policy directions for individual centres. The council wishes to secure the continued classification of Sutton as a Metropolitan Centre (Core Policy PMP6) and therefore must ensure that the quantum of convenience retail floorspace proposed does not affect this classification. Accordingly, the Mayor recommends a proactive partnership approach towards identifying and bringing forward capacity for different types of town centre related uses.

10

This section does not provide a comprehensive breakdown or summary of all pertinent policies. Some policies are covered in more detail in later sections of this docuemtn. 11

12

The London Plan (2011) Policy 2.7 (Outer London Economy) and Policy 2.15 (Town Centres)

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3.10 The Mayor is clear that Lonenable residential development capacity to be brought forward including through town centre renewal and intensification (also covered under Policy 2.15). Policy 3.4 stresses t

3.11 The Mayor also recognises the importance of improving opportunities for employment for all Londoners and as part of this indicates that strategic development proposals should support local employment, skills development and training opportunities (Policy 4.12).

3.12 decisions should achieve three key principles:

social and community infrastructure, local shops, employment opportunities, commercial services and public transport;

Development should enable people to live healthy, active lives; should maximise community cohesion; and should meet the principles

The design of buildings and spaces should reinforce or enhance the character, legibility, permeability and accessibility of the neighbourhood.

3.13 The range of policy guidance in the London Plan has been taken into account in the development of the Brief and where necessary is

expanded on later in the appropriate chapters of the document.

Local Policy Context 3.14 The Sutton Strategy 2009-20 sets out a vision to develop Sutton as a sustainable suburb in London. The Sutton Strategy is being used to

help promote social and economic well-being and is supported by the council(2010) which seeks, amongst other things, to secure thriving town and district centres.

3.15 The Core Planning Strategy (the CPS) seeks to deliver the spatial aspects set out in the Sutton Strategy. A key theme is to Encourage Enterprise and Employment its growth as a major shopping, commercial and residential location in South London.13 Core Policy PMP6 sets out how the council will promote Sutton town centre as a metropolitan centre and the range of proposals which will be supported to contribute to the growth of the town centre including:

The expansion of retail and leisure;

An increase in the range and quality of retail;

The creation and protection of a range of employment opportunities including enhanced offices;

13

See CPS Theme 3: Encouraging Enterprise and Employment and related Strategic Objective SO12.

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The development of a balanced and socially inclusive night time economy;

The creation of cultural opportunities;

Improvements to the public transport interchange facilities and the development of the London Tramlink; and

Public realm enhancements.

3.16 The Policy highlights that 90-95% of the predicted growth in comparison floorspace should be provided in Sutton town centre. Elsewhere the Core Planning Strategy identifies that the majority of identified convenience demand should be met in Hackbridge and Wallington (Core Policies PMP7 & 8). Core Policy PMP1: Housing Provision identifies that Sutton town centre must accommodate 40% of the additional dwelling supply in the Borough.

3.17 Although the borough of Sutton ranks low in terms of overall social deprivation compared to other London Boroughs there are concentrations of disadvantage including parts of Sutton North and Central Wards14 which have been identified as a Priority Community Regeneration Area. Accordingly, in line with government guidance and the London Plan, and in order to promote social inclusion and tackle deprivation, the council wants to target co-ordinated action in this area and will support investment in environmental improvements and sustainable transport schemes15. In addition, in accordance with the One Planet Living Principles,

3.18 In accordance with Core Policy PMP6, the Site Development Policies DPD (the Sites DPD) seeks to establish a multi-functional town centre comprising four which differ in terms of scale and character of their buildings, spaces and uses16. The North Sutton Sites fall in the Village Quarter.

3.19 The Sites are allocated as STC N1 in the Sites DPD . The residential element was identified for the provision of over 360 units, which is obviously a significant element of the 5-year supply.

3.20 The Sites DPD also sets out detailed development management policies. Of particular relevance are policies relating to maintaining and enhancing the local character and appearance of the area; protecting amenity values; and enhancing the street scene and public realm.17 Any future developments should also take account of policies regarding environmental sustainability, climate change and water supply, water quality and sewerage infrastructure.18 In addition, policies relating to development in town centres, office provision and shopping frontages are particularly important to the employment and the economic viability of the town centre.19

14

These Wards have Super Output Areas that are in the 20% most deprived communities in the country (as measured by Indices of Multiple Deprivation) 15

Core Policy PMP3 16

Gillespies Urban Design Framework (2009) 17

See SDP DPD Polices DM1: Character and Design, DM2: Protecting Amenity, DM3: Enhancing the Street Scene and Public Realm. 18

SDP DPD Policies DM5 DM12 19

SDP DPD Policies DM35: Development in Town and Local Centres, DM36: Office Provision through Mixed-Use Conversion or Redevelopment, DM37: Shopping Frontages in Town Centres.

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3.21 To support the CPS indicates that all new built development should be designed to the highest standards of sustainable design and construction and a safe and an attractive living environment will be promoted by improving the design and layout of buildings and public spaces.20 Planet Living Principles21.

3.22 - sport choices and for Sutton town centre this means supporting the extension to the London Tramlink network and identifies a number of schemes to help regenerate the northern-end of the town centre22.

3.23 Finally, and of particular significance for the North Sutton Sites, are the considerations regarding developments in the vicinity of the storage of hazardous substances and remediation of contaminated sites. The Crown Road Gas Holders have been identified by the Health and Safety Executive as a sit Sites DPD P sets out the relevant policy considerations when assessing applications for or in the vicinity of such sites.

Key Policy Conclusions 3.24 There are a number of key policy conclusions which must be taken into account when considering the redevelopment of the Brief area. All

development proposals must:

Secure development of an identifiable Village Quarter;

Ensure the development creates a range of local employment opportunities;

Provide housing and create a mix of housing types and tenures;

Contribute towards reducing social inequalities in the Priority Community Regeneration Area.

20

See CPS Theme 2: Achieving Environmental Sustainability and related Strategic Objectives SO5 SO7, and Theme 5: Improving the Streetscene and Living Environment and related Strategic Objective SO17 21

Core Policy BP6 One Planet Living 22

Core Policy BP9

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Land Use Considerations and Objectives Introduction 4.1 Government guidance in the National Planning Policy Framework (the NPPF) is clear that planning decisions must be taken in accordance

vour of and the NPPF encourages the planning system to do everything to support, and not to act as an impediment to,

sustainable economic growth (Para 14). Accordingly, and in order not to restrict uses of sites where there is no reasonable prospect of the use of the site coming forward, the NPPF requires councils to regularly review land allocations (Para 22).

4.2 In conformity with the NPPF, the Sites DPD is clear that the council will monitor the effectiveness of the Site Allocations and the extent to which they can achieve the delivery of the Vision and Objectives of the Core Strategy. In particular Paragraph 3.326 states that will consider if there is the need to review all or some of the allocations in the light of changes to national or regional policy or in the light of changing economic circumstances, whilst still trying to meet the overal

4.3 This chapter sets out the land use requirements identified for the North Sutton Sites in the development plan and the review of these in the context of a range of economic issues.

Key Land Use Requirements 4.4 The Strategic Vision for Sutton town centre is set out in Core Policy PMP6 which identifies a range of acceptable uses in the town centre

which will contribute to its regeneration and growth and promote it as a Metropolitan Centre. Site Policy DM35 makes clear that the council will grant planning permission for development which is appropriate to the scale, role, function and character of the centre and which makes the optimum use of the site. Policy DM35 also makes clear that the council will grant planning permission for development proposals within Sutton town centre where the scale and mix of development is appropriate within the different Quarters (in this case the Village (in this cae the Village Quarter).

4.5 The starting point for considering the land use requirements for these Sites is the land-use principles which are established for the Village Quarter in the Sites DPD23 and which are set out below:

23

The Sites DPD, Appendix 5

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Residential led mixed-use development;

A mix of housing types, including family units;

Ground floor retail along the High Street and Crown Road; and

Other uses including small scale offices and workshops (providing spaces for small buildings) as well as restaurants and leisure uses to support the retail function and provide an enhanced evening economy.

4.6 The main priorities for development in the Village Quarter is established in the adopted Sites DPD and is set out below:

Rerouting of the gyratory road system, via a new link to the west of the High Street and by diverting traffic onto other roads to the east, will bring a new pedestrian focus to the Zurich Square area. Alternative highway schemes will only be considered if they achieve a range of objectives regarding integration of the Village Quarter and Exchange Quarter and bring about significant improvements to the pedestrian environment;

Redevelopment of the Gas Holder and Magnet sites will create a new urban neighbourhood;

Potential for a new public transport interchange near Zurich Square;

Improvements to Sutton Green, and the creation of a green link along the High Street; and Potential new public car park to serve and encourage visitors to the quarter.

4.7 Finally, the Site Allocation for these Sites, STCN1, identifies that redevelopment should be for residential, retail, office and other uses

including small scale workshops and commercial leisure. Each of these allocated uses is reviewed in turn below.

4.8 As the Brief area comprises 30% of the total land area of the Village Quarter and approximately 90% of the land identified as Site Allocations in the Village Quarter, its redevelopment is key to the success of delivering the vision for this area.

Residential (Class C3) 4.9 The council wishes to optimise the use of town centre sites and to bring more residential development into the town centre and there is

potential to include a significant number of homes as part of the overall development mix24. The adopted Site Allocation for the North Sutton Sites identified the capacity for over 360 residential units. It is acknowledged that there are abnormal costs associated with decommissioning and decontamination of the Sites, and, therefore alternative proposals to a residential led scheme will be considered where robust evidence, including viability testing, demonstrates that such a scheme is not viable or deliverable. The council will expect in any case that the quantum of residential use in any forthcoming scheme is optimised.

4.10 Where residential units are located on upper floors, above the commercial uses, care will be needed to protect residential amenity through appropriate design. It will be particularly important to protect the amenities of all residential units from noise and fumes from any ducting and plant machinery e.g. extractors, air conditioning units etc. In addition entrances to all residential units provided above commercial must be

24

Core Planning Strategy Policy PMP1 Housing Provision identifies that Sutton town centre will accommodate approximately 40% (2,000-2,150 units) of the new housing required in the Borough

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accessed by well defined and welcoming accesses. 4.11 There is also the opportunity to extend the residential frontage along the southern part of Vale Road, limiting retail to the corner of Vale

Road/the High Street. This would complete the residential street and replace the dead blank façade of the existing warehouse. 4.12 In accordance with the London Plan25 and CPS, all residential development must optimise the density of any residential use on site having

regard to local context and character, existing and proposed public transport accessibility and social infrastructure and site characteristics. evel 5) and therefore,

in accordance with the London Plan, a density range of 650-1100 habitable rooms per hectare should be considered as the starting point of any development proposals set within the context of a range of other considerations. Density considerations need to take into account

also sets out density ranges for units per hectare taking into account dwelling size. For developments within a central setting the following ranges are expressed:

Average dwelling size Density

3.8-4.6 hr/unit 140-290 u/ha

3.1-3.7 hr/unit 175-355 u/ha

2.7-3.0 hr/unit 215-405 u/ha Source: GLA, London Plan

4.13 Any future redevelopment scheme must make sure that it does not represent an underdevelopment within the Brief area.

4.14 Both the London Plan and the Core Strategy state that the affordable housing provision should be provided on sites that are capable of

achieving 10 units or more gross and that the maximum reasonable amount of affordable housing should be sought having regard to the Borough-wide target. The Sites DPD Policy DM25 indicates that, when considering proposals, regard will also be had to individual site costs, economic viability, the availability of public subsidy and other scheme requirements. The amplification to Policy DM25 indicates that the tenure split of affordable housing should be, 70% social-rented housing and 30% intermediate housing.

4.15 W -rented affordable housing, the Early Minor Alterations to the London Plan propose a tenure split of 60% social and affordable rented housing and 40% for intermediate rent or sale.. Unlike social rented accommodation, affordable rent levels are to be set based on a proportion of market rents with a ceiling of 80%. Consideration is currently being given as to what proportion of market rent would be appropriate as an affordable rent in the borough and whether it should vary geographically across the

70% of all affordable housing should be for rent.

4.16 The Council encourages the involvement of a Registered Housing Provider at an early stage in any scheme involving affordable housing. This

25

Policy 3.4

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should ensuret hat any affordable housing provision will meet the Homes and Communities Agency (HCAs) requirements for funded schemes as well as meet the requirements of individual Register Providers. Some Registered Providers have indicated that there is a difficulty in building above shops due to the cost of service charges and servicing, and, some have particular concerns regarding provision of homes above cafes and bars. Careful consideration will therefore have to be given to the location of the affordable units in order to ensure these issues are addressed at an early stage.

4.17 Where practicable, 42% of affordable housing should be 3 bedroom or more family accommodation. Any 4 bed or larger units should be

provided as houses and not as apartments. 10% of all units should meet the Wheelchair Housing Design Guide standards and be fully fitted at handover.26 The Council does not support affordable studio flats and has a lower priority need for 1 bedroom affordable accommodation compared to larger sized units.

4.18 e Time

Homes Standards and Code for Sustainable Homes Level 4. Retail 4.19 The Sites are currently allocated for approximately 7,700 sqm of retail floorspace (A1-A5 use classes) which, after residential development,

represents the second largest land use in terms of quantum of allocated development.

4.20 When preparing the Core Strategy the council commissioned Savills (Hepher Dixon) to undertake a Retail Study for the borough. Savills

identified the overall need and capacity for 15,876 sqm comparison floorspace and 3,273 sqm for convenience floorspace up to 2017 and also mpeting centres. A

key conclusion was that Sutton is already characterised by a high level of convenience floorspace and must improve its comparison retail offer simply to retain its current position. The Sutton Town Centre Health Check (2010) updates this evidence base and highlights that Sutton has an unusually high level of convenience relative to high order comparison with the presence of Morrissons (4,000 sqm net) and Asda (4,250 sqm net) already on the High Street as well as an M&S food outlet. Farm Foods and Tesco Express are the other two main convenience outlets in Sutton although there are a number of smaller off licences which also contribute to the overall figure.

4.21 Accordingly, Savills identified the need to provide a substantial amount of additional comparison retail floorspace in Sutton town centre and

this requirement was carried forward into the CPS.27. Subsequently, the GLA commissioned Experian to update comparison needs forecasting and the results indicate that Sutton will need about 40,000 sqm gross floor area up to 2026. The site allocations in Sutton town

26

ordable (rental) wheelchair units, prior to the fitting out of each phase. This is likely to be a condition of any permission. 27

Core Policy PMP6 indicates that 90-95% of retail need should be met in Sutton town centre

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centre identify that only 16,500 sqm of retail floorspace can be met over the Plan period and therefore the council recognises the need to maximise comparison retail development where possible, but particularly in the Exchange Quarter (the primary focus for retailing in the town centre).28

4.22 The NPPF is clear that local planning authorities should, amongst other things, promote competitive town centres that provide customer choice and a diverse retail offer which reflect the individuality of the town centre; allocate a range of suitable sites that meet the scale and type of development needed in the town centre; and allocate appropriate edge of centre sites for main town centre uses that are well connected to the town centre where suitable and viable town centre sites are not available. Where superstores (i.e. over 2,500 sqm of development) are proposed and in applying this sequential approach towards site selection, local planning authorities must take into account impact considerations ensuring any edge of centre site (which the North Sutton Sites are) would not have an impact on the centre itself but should also substantially increase the attraction of that centre. As none of the site allocations in the Sites DPD were identified for a superstore and accordingly a Retail Impact Assessment was not required as part of the preparation of the Sites DPD. However, given the scale and nature of

, government guidance29 is clear that such an impact assessment must be undertaken.

4.23 LXB considers that a large foodstore led retail scheme of 11,000 sqm (gross retail floorspace) is the only viable option which will remove the gas holders and regenerate the Sites in the short-term. Accordingly, LXB instructed Firstplan planning consultants to undertake a Retail Impact Assessment of the development of a store of 11,000sqm to assess whether there was a need for the quantum of convenience floorspace proposed and to assess its impact on Sutton town centre and other district centres in the catchment area.

4.24 The council commissioned independent retail consultants Chase and Partners (Chase) to critically review the parameters, the base line

Firstplan has correctly identified that whilst Sutton town centre continues to perform an important shopping function for a substantial part of outer London, its relative performance has been deteriorating, particularly in comparison with the other three Metropolitan centres in south London.

The economic downturn and potential costs of decommissioning and decontamination means that a wholly comparison goods-led shopping redevelopment scheme is unlikely to be viable at the present time.

tudy.

The impact assessment on existing stores in Sutton and other centres has been assessed and takes into account existing unimplemented permissions including the superstore at Five Ways, at Felnex, and, in Mitcham. It identifies that whilst the cumulative

its viability. The trading impact on the Asda in Sutton is likely to be higher given that the store already trades at levels below the average for Asda stores. However, Chase agrees with Firstplan that the Sutton Asda store is capable of adapting to new competition. The Morris

28

Sites DPD Paras 3.311 and 4.29 29

NPPF Paras 23-26 & London Plan Policy 4.7

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store is less likely to be affected. Chase considers that the likely impact of the new development of the scale proposed would not be sufficient to contribute to significant adverse effects of an order to justify refusal of any future planning application.

4.25 er of signs of positive

change in the town centre including the public realm renewal scheme, the opening of Brasserie Vacherin which is run by a Michelin starred chef and the recent opening of a branch of Patisserie Valerie. In addition, businesses in Sutton have successfully secured the development of a Business Improvement District (BID) for Sutton town centre There is a determination to ensure the success of the town centre and consequently any proposal for a convenience superstore must demonstrate how it contributes to this and promotes Sutton town centre as an attractive retail destination as part of the network of Metropolitan Centres in south London.

4.26 If robust evidence is presented to justify that a residential led scheme would not be deliverable or viable, consideration will be given to a large

scale foodstore on the site, provided that it can be demonstrated that the content and increase in floorspace would not prejudice Sutton role and function of Sutton as a Metropolitan town centre.

4.27 Furthermore, Chase considers that any benefits to the wider town centre would only accrue if strong linkages are formed between the

proposed development and the rest of the town centre, and indeed, given the proposed scale of the development there is a risk that the propos Brief must therefore set out the design and accessibility proposals which ensure that the overarching objectives for Sutton town centre can be met by any future development proposals.

4.28 In order to meet the aspirations for the Village Quarter there will be the need to build a range of smaller retail units to provide opportunities for

service retail and eating and drinking establishments.

4.29 The Brief area currently includes a number of retail units many of which appear to be operating successfully. However the units occupied by

these businesses will need to be demolished in order to enable comprehensive redevelopment. Accordingly, the council will encourage the relocation of these retailers either within new units on site, or, elsewhere within the town centre. In particular, a large retail floor plate is to be constructed at ground floor as part of the redevelopment of the former Burger King Site and a store of this size might be suitable to accommodate a relocated Magnet Showroom.

Other Employment Uses 4.30 The council recognises that it is important to retain and increase employment in Sutton town centre. As well as offering vital job opportunities

to local people, employment-generating uses provide a daytime population that makes use of town centre shops and services and contributes to town centre prosperity. Possible sources of employment growth in Outer London include existing sectors such as retail (see above), leisure, tourism and offices sectors or new sectors including environmental and knowledge based or ICT technologies.

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The Site Allocation identified that these Sites could contribute towards this employment growth by providing approximately 1,700 sqm of small-scale workshops and 2,260 sqm of office (B1) space. The council considers that every opportunity should be taken to review opportunities for additional employment uses through the development of the detailed scheme and accordingly robust viability evidence will be required to demonstrate why this is not possible if it is not included as an integral part to the proposals.

Commercial Leisure/Community Facilities 4.31 The Site Allocation for these Sites identified opportunities for approximately 4,000 sqm of commercial leisure uses which are currently under-

represented in the town centre. The Brief has reviewed opportunities for other leisure/community uses that reinforce the overall town centre offer; could contribute to the objectives for the Village Quarter; and help address issues within this Priority Community Regeneration area. It is apparent that there is still a need for and opportunities to provide leisure, including gym facilities and community facilities such as a crèche or nursery or a private tuition centre (a similar scheme operates successfully in conjunction with a superstore in North Cheam).

Hotels 4.32 The North Sutton Site Allocation does not identify a hotel use for these Sites as the identified need for hotel bed spaces in Sutton31 has been

balanced against the need to allocate land for other uses and has been met by Allocations on a number of sites nearer Sutton Station. Notwithstanding this and given new evidence regarding the likely progress of hotels on the other allocations in the town centre, the need for additional hotel bed spaces in the Borough, and the likely benefits of a hotel in this location (particularly in terms of local employment), it is considered that the Brief should now identify a hotel use in this location.

Conclusions 4.33 In light of the review of the uses identified for these Sites set out above, the council supports the following list of land use objectives for the

Village Quarter:

The development of a mix of housing types, including family units;

The development of ground floor retail particularly along the High Street frontage;

The development of a mix of other uses including a mix of leisure and community uses, a hotel and small business units which will enhance local employment opportunities ;

The creation of a public realm/pedestrian focus at Zurich Square;

and

The potential development of a new public car park to serve and encourage visitors to the Village Quarter and to the northern end of the High Street;

31

GLA Hotel Demand Study (2006) identified visitor bed-space need in the Borough of 750 net new beds by 2026

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Urban Design Analysis and Objectives aspect of NPPF)

orms and scale and, as such, does not have a unified identity, lacks legibility and , 2009)

Introduction 5.1 This Chapter sets out the findings of an urban design analysis of the Brief and wider areas which builds on work undertaken by Gillespies in

the preparation of an Urban Design Framework for Sutton town centre as a whole32 and on the earlier work undertaken by Atkins in 2003 in the preparation of . The urban design analysis highlights the strengths and weaknesses of the area and has been used to develop the key urban design objectives specific to the future redevelopment of these Sites.

5.2 The amplification to Sites Policy DM1 indicates that the council will prepare urban design guidelines specifically for Sutton town centre which will augment and complement the policy requirements of the development plan and which will secure a number of principles including the need to secure:

development of different character areas that encourages diversity and interest in line with the Quarters principles;

exemplary development which creates a quality visual experience through street and building design;

an improved public realm that enhances the connections between spaces, landmarks and destinations; and

a clear structure of routes specifically for pedestrian and cyclists, reducing existing barriers to movement and establishing an attractive visitors circuit.

Heritage Issues 5.3 It is essential to understand the character of a place in order that new development can build on the positive elements of an area and can

32

Sutton Town Centre Urban Design Framework (Gillespies, February 2009)

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contribute to an enhanced character33. Figure 6 shows a number of historic maps of the Brief and wider areas. From this it can be seen that Sutton was a small rural community until quite late in the Victorian era. A Map of Sutton dated 181534 clearly shows that Sutton was linear settlement with the Brief area being part of the central core of the High Street, which only extended further south much later in the 18th Century.

5.4 The Tithe Map of 1840 shows that the frontage of the Sites to the High Street was made up of small development blocks. The development of the Sutton railway station in 1847 led to the rapid development of Sutton as a Victorian settlement of some stature. Associated infrastructure required to secure this development included the gas works which was first developed in this location in 1856. These works had three retorts and a capacity to hold 5,000 cubic foot of coal gas. Over the next 50 years there was a significant expansion of the gas works and by 1896 it covered a significant area of land. By 1908 the daily capacity of the gas works had extended to 180 million cubic feet of coal gas.

5.5 During the mid-Twentieth Century there was major civic and town centre redevelopment which resulted in the loss of a number of fine historic buildings; significant alterations to the morphology of the town centre and significant changes to the road layout with the creation of the one-way gyratory system around Sutton town centre. As part of this civic redevelopment, the gas works were rationalised and many of the buildings to the eastern and western sides were demolished, allowing for the development of the Zurich House complex and the Collingwood Estate.

5.6 There are no designated heritage assets within the Brief area. The only surviving Victorian Industrial structures remaining on the Gas Holders

site are the Victorian Gas holder (a column holder built in wrought iron and designed by F S Cripps and built in 1898) and Dex House (a two storey London brick structure) the second floor of which was used as a workshop and the first floor as the gas workers social club and union office.

5.7 To the east of the Brief area is Zurich House. The construction of the Eagle Star (now Zurich House) headquarters was one of the noted mid-

century developments, by the Owen Luder Partnership and is consequently noted in Pevsner35

English Heritage has been consulted about the significance of this building and has commented that it is not a good example of his architectural prowess and is therefore not worthy of protection. None of the buildings in the Brief area are either nationally or locally listed. Given the limited heritage interest in the Brief area, it is not identified as either a Conservation Area or an Area of Special Local Character.

5.8 However, there are a number of heritage assets in the vicinity of the Brief area which are shown on Figure 7 and are summarised below:

33

London Plan Policy 7.4 Local Character 34

The Sutton Enclosure Map, 1815 35

Owen Luder Partnership, 1963-7...A nine storey office block above two projecting storeys with shops. The line of the shops follows the curve of the road, then turns back along two sides of a little precinct. In front of this is a free-standing building with a glazed upper floor on concrete stilts. Wilfully complicated stairs link this and the main block to a car park behind. The tall block has horizontal bands of concrete with a rough surface and round ended lift shafts and stairs of concrete with shuttering marks exposed. The group looks best from the north making an emphatic statement at the entrance to the High Street, but up cl

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The All Saints Church (Grade B) lies over 400m to the north east and its tower is visible from the Brief area;

The nearest Listed Building is the Prince Regent PH (Grade II) which lies to the north;

The Beulah Road/Clarence Road Area of Special Local Character lies, at its nearest point, 50m to the south of the Brief area and consequently design of buildings fronting onto Crown Road and access arrangements should carefully consider the impact on the character and setting of this area;

Whilst not designated as an heritage asset, Sutton Green to the north is an integral part of the historic development of the Village Quarter and Sutton town centre itself and the three early Victorian mansion houses which front the Green have been locally listed partly as a result of these historic associations;

Other locally listed buildings in the vicinity of the Sites include the Winning Post PH (which is visible from the Brief area) and the Grapes PH (which is not visible) both lie to the south; and

There is a post medieval milestone also to the south on the High Street which is designated as a Scheduled Ancient Monument. This is not however visible from the site.

5.9 There have been a range of archaeological finds in the Village Quarter and, given the medieval origins of this part of the town centre, the Brief Area is identified as an Archaeological Priority Area. Accordingly, any planning application will have to be accompanied by an archaeological evaluation report which sets out a suitable mitigation strategy where required36.

Urban Design Issues Existing Built Development 5.10 Figure 8 identifies the layout, height and bulk (the morphology) of the existing built development and Figure 9 illustrates the significant urban

design weaknesses in and around the Brief area.

5.11 As described above, the historic development of the area has led to development on the Sites which has a morphology which is out of context and unsympathetic in terms of the area s Victorian development. The height of the Zurich complex means that it represents a negative local landmark. This is also true of the poor quality development of flats and retail on the Halfords site to the south of the Brief area. There is no predominant building style or use of a particular palette of materials.

5.12 Development to the south, in the Exchange Quarter, is also characterised by a number of unsympathetic developments including the Asda

building. The poor design of the Asda frontage (characterised by the travelator and views into the store which are obscured by giant posters) onto the pedestrianised High Street of nearly 100m 37 [ADD PHOTOS XX].

Topography/Views

36

Landowners/applicants will need to prepare an Archaeological Report in consultation and agreement with the Greater London Archaeological Advisory Service 37

Note that the frontage of Gas Holders site (excluding Dex House) is also nearly 100m

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5.13 Sutton town centre is characterised by a pronounced slope down from south to north with the Brief area representing the lowest point before the topography rises again to Angel Hill and Rosehill. The High Street is a key gateway to Sutton from the North and Hill . As a consequence of the height and bulk of Zurich House and the multi-storey car park it appears as a dominant entrance feature of Sutton town centre from quite a distance from the north (see Photo xx). Furthermore when pedestrians are heading to the North Sutton Sites from the south, along the pedestrianised section of the High Street, Zurich House appears to signify the end of the Exchange Quarter without creating the appropriate built design signals to the Village Quarter (see Photo xx). There are opportunities for high quality development on the Crown Road/High Street junction which could mitigate the impact of these buildings and which could help create improved local views.

5.14 There are no significant views from the Brief area to the landmark buildings identified by Gillespies. This is due partly to its topography and partly due to its urban grain. There are no long distance views which need to be preserved when considering redevelopment.

Public Realm 5.15 There is no cohesive approach to the design of surfacing materials, signage and soft/hard landscaping in the Brief area and therefore there is

no clear image of the public realm. As a result, these areas are unattractive and present a poor arrival experience to the Brief area and to the town centre as a whole, as shown in Photo xx. There is significant clutter at the Crown Road/High Street crossing as shown in Photo xx which makes it ted by the podium of the building. It does not currently present an attractive destination or an area where people would want to linger and socialise. More could be made of a public realm at this location given its south facing orientation. [ADD PHOTOS XX]. Furthermore, and in line with requests by Natural England, the council will consider the potential for green infrastructure and soft landscaping as part of any redevelopment proposal.

Integration 5.16 In 2010 Southampton University were commissioned by Tesc tudy the impact of large food stores on market towns and district centres.

The results of the study highlight the need for excellent integration to ensure linked trips in order to ensure that the new superstores contribute to vitality and viability of the existing centres. The Study highlights important urban design considerations, including the need for new development to be sensitive with the grain of existing centres and to facilitate connections. Where there is a good relationship and integration between the new store and the existing centre, the Study -previously considered. In view of this any proposal will have to demonstrate that the scheme is capable of being integrated into the existing town centre in order to facilitate linked trips and contribute to the overall vitality and viability of the town centre.

5.17 The key positive features of the Brief area include its prominent location onto two parts of the gyratory and its proximity to a large catchment area of residents and employees.

Key Urban Design Objectives 5.18 The Sites DPD adopts the following Urban Design Principles for the Village Quarter:

A fine-grained, permeable layout, with small streets, spaces and building footprints;

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Active ground floor frontages along the main streets, to provide character and interest; and

Building heights should be sensitive to adjoining smaller scale residential units. Elsewhere, new buildings should be 4-6 storeys in height, with the possibility of a taller

5.19 Within the context of the urban design analysis set out above, design guidance in the London Plan, the

Core Policy BP12 on design, n SPD Creating Locally Distinctive Places, and the adopted objectives for this Quarter, the following detailed urban design objectives have been produced. These are specific to the redevelopment of these Sites and the council will expect them to be considered by developers in any future planning applications.

5.20 All new development should: Design Principle: Building on Local Context

Respect the human scale of the High Street and Vale Road and therefore, along these frontages, buildings must be no higher than 4-6 storeys. Where 5 and 6 storeys are proposed it is suggested that considerable attention must be paid to the design to ensure that these storeys do not dominate the street scene;

Take the opportunities to create a distinctive character for the Village Quarter;

Seek to maximise views of the High Street and from the High Street in order to secure connectivity;

Promote inclusive design which integrates the new development with the surrounding urban grain; and

Ensure the setting of heritage assets near the Brief area are respected and protected and prior to any redevelopment on site an archaeological evaluation be undertaken.

Design Principle: Creating Safe and Attractive Building Layouts

Be planned so that buildings have active frontages onto Crown Road, the High Street, along Vale Road and onto the newly created public square. This means that ground floor uses should be open to the public directly from the street and that there should be frequent doors and windows. The fronts of buildings should face onto and overlook the street in order to secure maximum interaction between the buildings and public realm;

Propose active frontages along the length of any streets created within the Brief area;

Keep blank frontages (i.e. comprising solid walls) to a minimum. In some instances alternative uses can be wrapped around the blank facades of buildings. Where such a solution would result in single aspect units careful consideration should be given to orientation and appropriate uses. Where the units are south facing residential may still be possible otherwise uses such as gyms should be considered. Where blank frontages are difficult to design out, any blank walls must incorporate art features to break up their solidity;

Consider the potential for creating activity at upper levels through the use of balconies or landscaped roof terraces in conjunction with commercial or residential uses. However balconies for residential units must be of a sufficient size to accommodate tables and chairs in order to make sure they are actively used for social purposes and not just as additional storage. They must also be designed to

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secure a sense of privacy;

Consider comprehensive design proposals for the entire site, ensuring thacceptable. This will be a particular issue in relation to the spaces between the large footplate store and other uses to the north and east;

Ensure that there is no unacceptable overshadowing or overlooking. Particular attention should be paid to the relationship between any proposed development in the Brief area and the Victorian houses on Vale Road. Accordingly, daylight an dsunlight studies will have to be undertaken to demonstrate that there will be no unacceptable impact;;

Cover the service yard for the superstore development;

Offer well defined pedestrian routes and spaces across the Brief area including through the car park. Pedestrian routes must be overlooked to increase natural surveillance. This should help to discourage criminal behaviour. Where natural surveillance is difficult to achieve (i.e. extensive ground floor and basement parking areas and public areas) the council will expect electronic surveillance (i.e. CCTV) to be installed and this should be linked into the existing town centre CCTV system; and

Design Principle: Creating a Sense of Welcome

Create new and improved arrival experiences to the town centre by improving the public realm along the two key frontages of the Sites: the High Street and Crown Road. A taller building (up to 8 storeys) could be developed as a key building which would help announcing arrival to Sutton town centre from the north;

Sensitively design the key focal points from the High Street (looking north and south) and from St Nicholas Way to the Sites;

Create inviting spaces at the entrances of the Brief area, particularly at the junction of Crown Road and the High Street; and

Propose bold buildings, particularly on the corner of Vale Road, the High Street and on Crown Road in order to draw people to the area. The main pedestrian entrance to the superstore must face onto Crown Road at the nearest corner to the new pedestrianised public square. There must be direct pedestrian public access from this access to the crossing taking people to the Exchange Quarter to the south in order to secure linked trips.

Design Principle: Creating Vibrant, Attractive and Accessible Public Spaces

Contribute to securing a redesigned public realm around and through the Sites. A new public square should be created on the south east corner of the Brief area and cafes, bars and restaurants will be encouraged to locate adjacent to this and take advantage of its southerly aspect;

Consideration should be given to the creation of a water feature;

Clearly define public and private space with careful treatment of service yards and parking in order to ensure its visual dominance is reduced through design and landscaping schemes;

Co-ordinate the design of improvements to the public realm. Any scheme should have regard to the palette of materials (surface treatment, lighting etc), approved for the gyratory as part of any adopted Design Manual;

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De-clutter/simplify the public realm whilst maximising the use of public art, sculpture and architectural lighting which will also help to redefine the role of this public realm. Public art should be used particularly to help create a sense of identity;

Maximise opportunities for urban greening and biodiversity including the creation of green walls and roves and to provide access to nature, for example by providing opportunities for garden birds with any planting scheme;

Where possible, link open spaces adjacent to the Brief area back to paths and other sites. The provision of green infrastructure through the new proposed public realm could help achieve this and enhance these linkages; and

Propose excellent shop f Urban Design Guide (SPD14). Shop fronts can be of a contemporary design. All shop front designs should minimise signage and advertisement clutter. The council will not accept non site specific corporate design approaches.

5.21 The esign Principle Building for the Future is dealt with below in the section on Sustainability Objectives and the Design Principle is addressed in the section on Access.

Other General Housing Requirements 5.22 The Mayor considers the size of new homes to be critical to the creation of well designed schemes and the development of successful

neighbourhoods38. Accordingly the London Plan sets out minimum space standards for dwellings of diffeThe standards for flats are set out below.

Dwelling Type

(bedroom (b)/person bed spaces (p))

Gross Internal Area

(sq.m)

1b 2p 50

2b 3p 61

2b 4p 70

3b 4p 74

3b 5p 86

3b 6p 95 Source: GLA, London Plan

5.23 These standards are based on evidence39 which demonstrates the benefits of minimum floorspace standards including: improvements to

general health and wellbeing; better quality of family life; improved educational attainment and productivity; and that a reduction in

38

London Plan Policy 3.5 39

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overcrowding can lead to a reduction in antisocial behaviour.

5.24 The standards take into account the number of occupants as well as the number of bedrooms and therefore in order to be able to properly assess if proposals meet the ospaces/occupiers a home is designed to accommodate.

5.25 Furthermore, the Mayor stresses that adequate storage requirements are also critical for the success of residential schemes, particularly for

larger family units. Storage cupboards of a minimum of 0.8sq m (gross internal area) should be provided for 1-2 person dwellings and an additional 0.15sq m should be provided for each additional occupant. The provision of adequate storage will also minimise the risk of external

bulky toys.

5.26 As well as addressing minimum space standards the Mayor stresses that the design of new dwellings should also take account of the

importance of creating a welcoming arrival experience paying careful attention to entrances and shared circulation space. Furthermore there is the need to respond to the ageing population by having regard to inclusive design principles of Lifetime Homes. Typically there should be a limit of nine residential units per core and, finally, the Mayor considers that dual aspect apartments should be proposed wherever possible and if, exceptionally, some single aspect units are proposed these should be south facing.

5.27 -bed units40. The Mayor considers a minimum of 5 sq

m of private outdoor space should be provided for 1-2 person dwellings and an additional 1 sq m should be provided for each additional occupant. Furthermore, balconies should have a minimum depth of not less than 1.5 sq m and should be sighted to avoid unsightly areas such as loading bays. Balconies should be design be to ensure privacy of the users.

5.28 for Children and

41. The level of amenity and play space provision, its design and its most suitable location will be dependent on the number of residential units proposed, the child yield calculation, and, the suitability and proximity of existing amenity/play space.

5.29 Whilst the CPS indicates that in and around town centres amenity space standards can be applied flexibly, there are concerns that as Sutton

North ward is in an Area of Deficiency in access to local parks and as Sutton Central ward, which immediately abuts the site to the south, has one of the lowest amounts of accessible open space per 1,000 population in the Borough42, the provision of additional private amenity and play space will be a significant issue.

40

41

42

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Figure 6: Historic Development of North Sutton Sites and Surrounds

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Figure 7: Heritage Assets

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Figure 8: Existing Morphology

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Figure 9: Urban Design Analysis

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Figure 10: Urban Design Objectives

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SIX

Access, Circulation and Servicing Analysis and Objectives Policy Context 6.1 This section and sets out the strategic transport policy context set by the

GLA and TFL within which movement objectives have been set.

6.2 road congestion, improving traffic journey time, reliability and predictability (London Plan Policy 6.11: Smoothing Traffic Flow and Tackling Congestion). The GLA indicates that DPDs should develop an integrated package of measures to achieve these objectives including improving the extent and quality of pedestrian and cycling routes; improving the extent and quality of public transport; promoting car clubs; and ensuring that the needs of street users and improvements to the public realm are dealt with in a co-ordinated way.

6.3 The Mayor considers that parking policy can have significant effects in influencing transport choices and addressing congestion. It can effect patterns of development and play an important part in the economic success and liveability of places, particularly town centres. There needs

cordingly, London Plan Policy 6.13: Parking indicates that in areas with high public transport accessibility, car free developments should be promoted (whilst still providing for disabled people).

6.4 There is also a local highways and movement policy context for the Brief area roduce a number of specific highways schemes to assist the regeneration of the northern end of Sutton town centre, including a number of new road links (Policy BP9 and Figure 4). The Site Allocation for the North Sutton Sites clearly indicates that redevelopment should pay particular

fied town centre

highways scheme will only be supported by the council if it meets the objectives of significantly improving the pedestrian environment (including a possible extension of the exiting pedestrianised High Street), and, improving connectivity between these sites and the Exchange

The proposed highway schemes are identified on the Proposals Map. The Sites DPD makes clear that in advance of preparing specific urban design guidelines for Sutton town centre as an SPD, the council will continue to have regard to the Urban Design Framework prepared by Gillespies.

6.5 In addition, the Site Allocation identifies the need to protect land for Tramlink/a Tramlink stop along the High Street frontage.

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6.6 There are complex and often conflicting access, circulation and movement issues within the Brief area. These issues are illustrated on Figure 11 and are summarised below and any redevelopment must seek to contribute towards resolving these conflicts.

Existing Access, Linkages and Connections Pedestrian Movements 6.7 As noted in the previous Chapters there is limited pedestrian permeability across the Brief area.

6.8 Whilst Crown Road and the High Street, as part of the circulatory road system, are busy vehicle routes there is a signalised crossing point linking the Brief area and the High Street/Exchange Quarter further south which helps facilitate movement of pedestrians to the Exchange Quarter. This crossing is well used and is an important link between the eastern and northern residential areas and the main High Street shopping area of the Exchange Quarter. However, it is accepted that it is currently unattractive (See photos) and that a number of urban design measures, including de-cluttering, should be undertaken to improve the overall appearance of this crossing. The crossing point could also benefit from a re-alignment.

6.9 The signalled pedestrian crossing on the High Street can also cause tail back of traffic and any redevelopment which affects this part of the highway should review measures to improve the performance of this crossing.

6.10 There is also a narrow Public Right of Way, along the western edge of the Brief area, between the Gas Holders and the Collingwood Estate which provides an important connection to the town centre. However it is poorly designed and currently uninviting.

Cyclist Movements 6.11 Crown Road/the High Street are part of a network of Borough cycle routes and are seen as an important link to the town centre and any

proposals to alter the highway must improve, where possible, cycle connectivity and integrate with existing cycle facilities.

6.12 In accordance with national guidance the council has improved cycle parking throughout the town centre and the nearest location of cycle stands are outside the Asda store on the pedestrianised part of the High Street. The Brief area should be provided with additional cycle facilities. To accord with London Plan policy 6.9 Cycling, cycle parking must be provided to the minimum standards set out in London Plan Table 6.2. This requires 1 cycle space per 1-2 bed residential unit and 2 spaces for 3 or more bed units. Retail standards require 1 space per 125sqm and 1 space per 300sqm for non-food. This parking must be sheltered and secure and showering and changing facilities should be provided for staff.

Existing Public Transport 6.13 Due to the range and frequency of services and the bus stops in the vicinity, this area is a key arrival point in the town centre and therefore

early discussion with TfL will be required regarding any changes to public transport arrangements.

6.14 In 2010 the council commissioned Peter Brett Associates LLP (PBA) to conduct a review of problems with the public transport network and to highlight possible improvements. The resulting PBA report, Scoping Study for Improvements to Public

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identified that the bus stop outside of Matalan experiences congestion, and, that as 9 out of the 12 bus services in the area stop here, there are often conflicts of movements.

6.15 Having identified a number of conflicts in the area the council has started a programme of improvement works and these are set out in the section on improvement works below and are shown in the Figure 14 at the end of this Chapter.

Existing Car Movements 6.16 Transport for

but is part of the approximately 1,600 vehicles passing through the High Street/Crown Road junction and approximately 1,000 vehicles passing through the High Street/Vale Road junction during Friday evening peak flows. Whilst the roads around the Brief area are subject to significant traffic flows and peak period delays, it is the

Existing Delivery/Servicing Arrangements 6.17 There are a number of smaller units along the High Street which can only be serviced from the front of the properties and it is noted that this

can cause congestion along the road. In particular PBA identified that there are conflicts with parking and servicing of shops opposite Matalan. Again, the council is seeking to address some of these problems through the rationalisation of conflicting demands for the highway space and details of these are set out below.

Existing Parking Arrangements Disabled Persons Parking Bays 6.18 Figure 11 also highlights the current location and number of designated disabled persons parking bays in the area of the Brief and the

nearest are provided on Marshall s Road. 6.19 It is clear that these spaces are popular and are well used and it is important that an adequate number of spaces for disabled people are

retained in the in the town centre. In order to rationalise other problems in the area these spaces are being moved to the other side of the road. Any further alterations required to the highway network/bus stops etc in the vicinity of the Sites must secure the continued provision of

Controlled Parking Zone (CPZ) 6.20 There is a CPZ on all the roads in the vicinity of these Sites which is very popular and well used. Due to existing parking capacity issues no

new permits will be provided for the CPZ to serve the needs of the development. Future Public Transport 6.21 The council is committed to supporting sustainable transport options and therefore will continue to support the extension of the London

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Tramlink network in Sutton town centre43. In line with the Atkins Study: Development of Transport Options for Sutton Town Centre (2008), the route of the Tramlink extension is identified in the Core Strategy and Sites DPD to run along St Nicholas Way, Crown Road and the High Street and would require some alterations to existing road layouts. However, a scoping study has been prepared into potential routing options through Sutton Town Centre and this forms part of a draft strategy for Tramlink extensions prepared by TfL which will be presented to the Mayor in late summer / autumn 2012 and may be adopted by TfL thereafter. This will provide guidance on the priorities for Tramlink extension schemes including the one to Sutton. Subject to the results of acceptable route through Sutton Town Centre for a possible extension to Tramlink.

6.22 Notwithstanding this, detailed tram tracking for the route identified in the Core Planning Strategy has been modelled by highways consultants, PBA, for the roads adjoining the Brief area and the resulting requirements of this are shown on the drawings in Appendix 1. 44 TfL must be consulted on any redevelopment scheme in order to ensure that they are satisfied that proposals will not affect the future Tramlink extension.

6.23 TfL London Buses must be fully consulted on any access design and alterations to bus stops in order to ensure wider sustainability objectives are met.

Current & Future Improvement Schemes/Initiatives 6.24 In view of the problems on the gyratory identified above the council is currently implementing a range of improvement schemes along parts of

the High Street and Marshall s Road including:

Relocation of the taxi rank in the existing lay-the prohibition of loading in the High Street to smooth flow of traffic;

Relocation of bus stops from Hig with installation of a n ;

;

Extending the existing bus shelter in the High Street by Matalan; and

Improving the existing bus stop in Lodge Road/Throwley Way by extending the existing shelter. The island will be resurfaced to match the High Street and the footway on alongside the Old Court House will be extended.

6.25 These improvements are shown in Figure 13 at the end of this Chapter. However, any further changes required locally as a result of this scheme should eb built into a wider review of bus stop and taxi provision in the town centre.

6.26 In addition, any redevelopment scheme must take into account the possible use of Burnell Road by traffic, as indicated in the development plan.

43

The London Plan states that development proposals that do not provide adequate safeguarding for identified improvement schemes should be refused. See Core Policy BP9

44 It should be noted that whilst this tracking is only shown on one of the highways access options the tracking alignment would be pertinent to all options.

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6.27 The council is considering the necessity of preparing a Design Manual for the gyratory which will clearly spell out materials and finishes to be used. Applicants will have to take into account any provisions of such a Manual, if it has been approved prior to the consideration of any planning application for this site.

Key Objectives 6.28 From the movement analysis set out above the council has a number of key objectives that must be addressed in any future development. In

summary, all new development within the Brief area should:

Reduce traffic impact on the environment and to encourage greater use of walking, cycling and public transport. The development proposals must be supported by a Transport Assessment to demonstrate how objectives can be met;

Design access arrangements which limit development traffic use of the High Street/Crown Road junction;

Facilitate pedestrian movement by ensuring the building layout and the public realm are designed in a way that makes it easy to navigate through and around the Sites. This is particularly important in order to secure connectivity to the High Street and the Exchange Quarter to the south in order to facilitate/encourage linked trips;

Protect the route for the London Tramlink extension;

Secure integrated delivery/servicing arrangements;

Provide car parking within London Plan standardsparking for the residential element of the redevelopment would be desirable. Where parking is provided, redevelopment must ensure that it is integrated into the development and does not dominate the street scene. As part of any car free approach, development should provide the appropriate number of car club spaces;

- and

Provide sufficient secure cycle and motorcycle parking and supported facilities in accordance with London Plan requirements.

6.29 As an integral part of the development the council will also expect:

Enhancements to the Public Right of Way to the west in order to improve openness and permeability. Any improvement scheme must remove the canyon like effect currently created by the high walls on either side of the footpath. The redevelopment of the Sites should also address therelocation of the electricity substation;

Improvements to the pedestrian crossings, but particularly that at the south-eastern corner of the site in order to encourage linked trips. The council prefers the use of straight crossings where possible;

Improvements to highway design to promote bus priority and improvements to bus waiting facilities;

- icularly through the residential areas to the north and west of the sites. This is most likely to require appropriate traffic management measures to be applied to Vale Road;

Enhancements to public footways adjoining the site along Vale Road, the High Street and Crown Road. This should include the removal of street clutter and, where, appropriate, the widening of the pedestrian area; and

The use of high quality materials for hard and soft landscaping.

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Figure 11: Access and Movement Analysis Please Note this is a replacement Figure which has been amended to correctly show the extent of the two way working on Vale Road.

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Figure 12: Access and Movement Objectives

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This Map has been moved to Appendix 1

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Figure 13: Current Improvements to the Public Highway

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SEVEN

Services & Utilities Infrastructure, Natural Features & Site

Drainage

Current Gas Operations 7.1 There are currently two operational gas holders on the western half of the Sites which store approximately 31 million cubic feet of gas at

atmospheric pressure and temperature. However, as noted in the Section on the historic development of these Sites, and, as shown in Figure 6, a much wider area was once occupied by the gas works. This historic and current use of the Sites has significant implications for any redevelopment, both in terms of the redevelopment potential of the eastern portion of the Brief Area if the gas holders are not decommissioned, and, in terms of decontamination issues.

7.2 The Health and Safety Executive (HSE) has informed the council that the Crown Road gas holders are notifiable sites and therefore, in considering applications for development at or in the vicinity of the gas holders, the council must have regard to a number of objectives including the need to maintain appropriate distances between establishments and residential areas, areas of public use and areas of particular natural sensitivity or interest. Policies 5.22: Hazardous Substances of the London Plan and DM14: Hazardous Substances of the Sites DPD set out the development plan context against which applications will be determined.

7.3 Furthermore, if an application comes forward for the partial redevelopment of the Sites, the council must consult with the HSE, who has set allations

. The HSE defined consultation zones for the gas holders are shown on Figure 14. The risks and hazards from the major hazards are greatest in the inner zone so the restrictions on development within this zone are obviously strictest. As can be seen in Figure 14 part of the Zurich House complex lies in Zone 1 and the majority of the Sites (bar a small corner of the Magnet Building) lie in Zones 1&2. For this reason, in determining whether or not to grant planning permission for a proposed development within these consultation zones, the Planning Authority will consult the Health and Safety Executive about risks to the proposed development from the major hazards in accordance with Circular 04/00.

7.4 Accordingly, if the gas holders are not decommissioned, the redevelopment capacity of the eastern part of the site will be limited. Therefore,

and, in order to meet the renewal whole Brief Area.

Contamination 7.5 As noted above, there is significant likelihood of contamination across the Sites.

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7.6 There has been a number of previous contamination investigation and remediation works carried out in the context of this site and Figure 15 illustrates the key hotspots of contamination and previous remediation works already undertaken.

7.7 Notwithstanding the previous investigation and decontamination works undertaken, the council will expect a comprehensive report on

contamination site investigation to assess the extent of the potential contamination and the extent of former below ground structures (e.g. tar and liquor tanks, gas holder bases, retort house foundations). Environmental Protection Officer is recommended regarding this programme of work.

Services and Utilities Infrastructure 7.8 Figure 16 broadly identifies the range and the routes of services and utilities infrastructure within the Brief and wider areas including Thames

Water foul and surface sewers, Sutton and East Surrey water mains, BT lines, EDF energy cables, and a range of gas mains. These services will affect comprehensive redevelopment and will need to be considered in more detail with any proposed development45.

Natural Features 7.9 The council seeks to protect and enhance the biodiversity of the borough and seeks to improve access to nature, particularly in defined Areas

of Deficiency in Access, through the application of Policy DM17: Biodiversity, Habitats and Species.

7.10 The Brief area is not located within or adjacent to any statutory or non-statutory designated nature conservation sites. The nearest statutorily designated site (Devonshire Avenue Nature Area Local Nature Reserve) is located about 2km to the south. However, the area does lie within an Area of Deficiency of Access to Nature (defined by the GLA as a built up area more than 1km actual walking distance from an accessible Metropolitan or Borough site).

7.11 LXB appointed consultants, Waterman, to undertake an Extended Phase 1 Habitat Survey of the area in 2011. Waterman reviewed the site context, statutory and non-statutory sites in and adjacent to the Brief area, records of protected, Biodiversity Action Plan (BAP) and other notable species within 2km of the area. The survey also looked at the Sutton BAP habitats and species. Their conclusions about the potential impacts and recommendations are set out below:

There would be no impact on statutory or non-statutory sites. However all works should be carried out to British Standards and Best Practice Guidelines with regard to ecology;

The majority of the Sites comprise habitats of negligible ecological value however, any redevelopment proposals should consider the retention of mature trees, where possible; the enhancement of habitat areas through additional planting around the Site boundary; and, the use of native species or species of benefit to wildlife within any proposed landscape scheme;

The majority of buildings and built structures have negligible potential to support roosting bats although a full internal and external building inspection should be undertaken of Dex House (the Victorian two storey building fronting Crown Road) to assess its potential. The data obtained from this survey should be used to inform development proposals, mitigation and enhancement strategies with the relevant organisations and in consultation with the council;

Due to the possibility of the use of any vegetation/trees and Dex House as a nesting habitat any works or building demolition should be undertaken outside of the bird breeding season (March-August inclusive) unless a prior survey by an ecologist confirms no active

45

SDP DPD Policy DM9

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nests would be affected;

Starlings (a UK and London BAP priority species) are known to perch on the iron columns of the gas holders and therefore nesting opportunities should be incorporated into the development proposals; and

As invertebrates use the Sites enhancement features for them should be incorporated into the development, such as the provision of native plant species.

7.12 A programme of further ecological appraisal and proposed mitigation work will have to be agreed by the council and be secured through planning condition.

Site Drainage 7.13 Long standing government guidance requires consideration of strategic land allocations in the context of flood risk and encourages local

planning authorities to undertake a Strategic Flood Risk Assessment (SFRA) as part of the preparation of the Local Development Framework. LB Sutton, together with Wandsworth, Merton and Croydon, commissioned Scott Wilson to undertake a Level 1 SFRA (2008) to determine the variation in flood risk across the Boroughs; to identify the extent of flood zones, and, to identify areas at risk from all sources of flooding. In 2009 Scott Wilson undertook a Level 2 SFRA specifically for Sutton, to inform on flood risks associated with allocated sites which take into account the results of the Beverly Brook and Wandle Valley Flood Modelling mapping outputs.

7.14 In addition to this, LXB commissioned consultants Waterman to assess baseline flood risk information and to outline a surface water drainage strategy in advance of the preparation of a FRA. From this data it is clear that the Brief area is in Flood Zone 1 and there is consequently considered to be a low risk of tidal or fluvial flooding.46 There have been no reported incidents of groundwater flooding at the Sites and the risk of groundwater flooding is considered low. If any proposed basement parking is to be proposed, its likely impact upon groundwater flows and ground water flood risk elsewhere would need to be confirmed following detailed site investigations. Developers will also be required to demonstrate that development proposals will not lead to sewer flooding on or off site.

7.15 (surface water) flooding

based on natural topography, shows that the eastern and western boundaries of the Sites could be subject to pluvial flooding.

7.16 The Sites are located on the edge of a Critical Drainage Area and therefore surface water runoff will have to be carefully controlled and

considered as part of any application.

7.17 The council will require, in line with guidance, a flood risk assessment to accompany any planning application because of the scale of the development.

Conclusions The measures to address the implications of the issues identified above will have to be addressed as part of any planning application and details of information requirements are set out more fully in Chapter 8 on Sustainability Objectives and Chapter 10 on Application Requirements.

46

The EA has confirmed to Waterman that the site has not been subject to historic flooding resulting from fluvial or tidal sources.

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Figure 14: PADHI Distances

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Figure 15: Contamination: History & Remediation

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Figure 16: Services & Utilities

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Sustainability Objectives )

Introduction 8.1

ighest standards of ions (climate

change mitigation), ensuring that proposed developments are fully adapted to future climate impacts (climate change adaptation), avoiding or minimising all sources of flood risk and promoting the highest standards of sustainable design and construction have already been established

and BP7 of the Core Planning Strategy and Policies DM5-DM14 of the Site Development Policies DPD. It should also be noted that supplementary guidance on the application of these policies will be provided

ch is scheduled for adoption during 2013.

8.2 This chapter translates these overarching policy objectives into a number of key sustainability principles which should be used to guide the redevelopment of the North Sutton sites. The key sustainability principles set out below reflect the local context in terms of the particular environmental opportunities and constraints affecting the site. It is considered that the proposed redevelopment of these sites would present some inherent sustainability benefits by unlocking an existing contaminated town centre site and providing a high quality, mixed-use development which will benefit local communities.

Sustainability Issues 8.3 The main sustainability issues to be addressed in this section include:

achieving the highest standards of sustainable design and construction;

make the fullest contribution to minimising carbon dioxide emissions (climate change mitigation)

avoiding or minimise all sources of flood risk to people and property;

achieving high standards of water efficiency;

protecting and enhancing ecological value and biological diversity;

reducing potentially adverse environmental impacts and public exposure to polluting emissions to acceptable levels;

achieving sustainable waste management during construction and operation of the site; and

enhancing community well-being and quality of life for residents, workers and visitors; and

minimising adverse construction impacts on local amenity and public health.

8.4 Related environmental issues such as noise impacts and contaminated land are addressed elsewhere within this Planning Brief.

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Key Sustainability Principles Sustainability Principle: Sustainable Design Standards

8.5 The development should aim to meet exemplary standards of sustainable design and construction in accordplanning policy requirements and achieve certification against nationally described sustainable buildings standards by:

iability and feasibility considerations. This standard will be applied to the non-residential elements of the scheme which have an individual floor area of over 1000m2. A BREEAM Predictive Assessment will be submitted at the planning application stage together with a commitment to undertake post-construction stage assessment and to achieve final certification under BREEAM within 3 months of occupation of the development; and

aiming to achieve Code for Sustainable Homes Level 4 for all residential development, including the mandatory standards set in relation to dwelling emission rate (ENE1) and indoor water use (WAT1), subject to scheme viability and feasibility considerations. A Predictive Code for Sustainable Homes assessment will be submitted at the planning application stage together with a commitment to undertake a post-construction stage assessment and to achieve final certification under this scheme prior to occupation of the dwellings.

Sustainability Principle: Energy and Climate Change Mitigation

8.6 The development should make the fullest contribution to minimising carbon dioxide emissions over and above the levels imposed by Building d to ensure that

Each element of the proposed development should aim to achieve the following percentage reductions in carbon dioxide emissions compared to the Targerequirements set under Policy DM6 of the Site Development Policies DPD and the London Plan 2011.

Residential Buildings 2012-13: 25% reduction; 2013-16: 40% reduction; and 2016 onwards: zero carbon.

Non-Residential Buildings (Major Development only) 2010-13: 25% reduction; 2013-16: 40% reduction; 2016-19: as per Building Regulations; and 2019 onwards: zero carbon

The development should seek (i) Be lean; use less energy: The development should achieve the highest standards of energy efficient design and layout through

optimising passive design measures such as building orientation, layout, massing, landscaping; achieving high standards of insulation, fabric energy efficiency and air tightness; and making use of natural systems, such as daylight and natural ventilation and cooling, where feasible;

(ii) Be clean: supply energy efficiently: The development should evaluate the feasibility of a site wide Combined Heat and Power (CHP) network supplied by low or zero carbon energy serving all proposed uses on site with a suitable heat profile. Any proposed site-wide and/or communal CHP systems should be designed to facilitate interconnection any future planned Decentralised Energy

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SPD. All opportunities should be investigated for extending any proposed CHP system beyond site boundary to serve adjacent developments, where on-site mitigation measures are insufficient to meet the relevant carbon reduction targets; and

(iii) Be green: use renewable energy: The development should consider renewable energy as part of mix to reduce CO2 emissions and include suitable technologies where feasible and commercially viable with an aspiration for the proposal to achieve a 20% reduction in emissions through the use of renewable sources of energy generated on-site.

Although the preferred objective will be to achieve the necessary savings on-site, where compelling reasons can be demonstrated that achieving the above carbon dioxide reduction targets on-site would not be technically feasible or consistent with the commercial viability of the scheme, the development should seek to offset any shortfall in emissions reductions either through (i) a financial contribution to the

, or (ii) by making a commitment to undertake equivalent carbon dioxide emissions reduction measures offsite, including the possible export of low or zero carbon heat to adjacent buildings, in accordance with an agreed programme. In either case, any proposed carbon offsetting options will be subject to further review by the developer and the Council, and viability fully explored; and

An Energy Assessment will be prepared in support of the planning application, showing how the relevant targets for reducing carbon dioxide emissions and promoting renewable energy technologies will be met.

Sustainability Principle: Flood Risk 8.7 should seek to avoid or minimise all sources of flood risk to people

and property where possible, and manage any residual risks, taking account of the future impacts of climate change, without increasing flood risk elsewhere, by:

yout to those areas at lower flood risk, matching the vulnerability of the proposed use to flood risk and taking the degree of hazard into account, having

e set out in the

Sustainable Design and Construction;

seeking to manage surface water run-off as close to its source as possible by incorporating appropriate sustainable urban drainage systems (SUDS) measures in accordance with national standards for the design, construction and maintenance of SUDS, the Mayor

the forthcoming Climate Change SPD;

reducing peak surface water flow rates for both the 1 in 1 year and the 1 in 100 year rainfall events to a minimum of 50% of the existing nded);

ensuring that the volume of runoff for the 1 in 100 yr, 6 hr rainfall event is no greater than that prior to the proposed development;

seeking to incorporate green roofs/walls where technically feasible and consistent with the commercial viability of the scheme;

ensuring that any residual flood risks to people and property are safely mitigated through the use of appropriate flood resistance and quivalent; and

ensuring that a Flood Risk Assessment (FRA) is submitted in support of the planning application to identify and assess the risks of all forms of flooding to and from the development and demonstrate how these flood risks will be managed now and in the future in line with the minimum FRA requirements. The FRA should be based on the best available modelling information on all sources of flood risk affecting the site and the adjacent area, taking climate change impacts into account.

Sustainability Principle: Climate Change Adaptation

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8.8 The layout and design of the development should seek to minimise vulnerability of people and property and be adaptable and resilient to and key adaptation principles set out in the Borough Climate

Change Adaptation Strategy by:

avoiding or minimising all sources of flood risk to people and property (see above);

maximising the role of green infrastructure in minimising overheating and contribution to the urban heat island (UHI) effect by seeking to permeate the development with appropriate landscaping and planting measures. The development should apply with Space Checklist and provide a statement of performance with a future planning application;

maximising the role of blue infrastructure as far as practical and safe to do so for the site, taking account of opportunities for urban cooling, flood storage/SUDS, local amenity and biodiversity;

ensuring that as far as practicable, the design of the development takes account of flexibility and adaptability, for example towards potential changes in climatic conditions and other changing economic, environmental or social demands.

8.9 Any details of the proposed climate change adaptation measures should be provided in the Sustainability Statement and where relevant,

within the Environmental Statement (EIA) submitted with the planning application: Sustainability Principle: Water Conservation

8.10 The development should achieve high standards of water efficiency through the following recognised sustainable design standards and relevant planning policies:

ensuring that internal potable water consumption is limited to a maximum of 105 litres per person per day for all residential units in accordance with the mandatory standard set under Code for Sustainable Homes Level 4;

ensuring that water conservation is addressed in accordance with BREEAM Excellent standards;

including rainwater harvesting in order to offset the majority of potable water demand used in the WCs and for landscape irrigation; and

providing details of water efficiency standards and proposed water conservation measures in the Sustainability Statement submitted with the planning application

Sustainability Principle: Biodiversity and habitats

8.11 The development will seek to achieve a net gain in ecological value and biological diversity compared to baseline conditions on site and, where necessary, mitigate impacts on existing ecology by:

exploring opportunities for creating new urban habitats as an integral part of the design and landscaping of the development and for

promoting the multifunctional benefits of green infrastructure for biodiversity and a range of other objectives where feasible;

seeking to increase overall vegetation cover and habitat connectivity across the site;

giving consideration to green or brown roofs/ walls on taller buildings, where technically feasible or consistent the viability of the scheme;

Ensuring the long-term management of any green infrastructure or habitat created as part of the development; and

Improving access to nature.. Sustainability Principle: Sustainable Transport

8.12 The development should seek to promote sustainable transport objectives and access in line with the aims of Smarter Travel Sutton by:

preparing a separate Transport Assessment together with work undertaken as part of the EIA;

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providing car parking to support the development and the wider town centre assisting to secure sustainable economic objectives. Parking should be provided within policy requirements to minimise car parking provision and encourage, where possible, a car free development;

seeking to incorporate transport solutions which reduce potential environmental impacts and congestion on local roads.

seeking to attain improved pedestrian and cycle environment;

ensuring the design and layout of the development accommodates the future Tramlink extension;

incorporating provision for electric vehicles; and

preparing, implementing and monitoring a Travel Plan for the development, and give consideration to car clubs and public transport incentives.

Sustainability Principle: Environmental Protection

8.13 The development should seek to reduce potentially adverse environmental impacts and public exposure to polluting emissions to acceptable levels by:

following all relevant regulatory, planning policy and procedural requirements to ensure that the potentially significant adverse affects of

the development are assessed and appropriate mitigation put forward; and

seeking to go beyond essential mitigation in order to enhance the existing situation prior to the proposed development where possible. The scope of environmental protection issues will be agreed with the Council and other relevant statutory consultation during the EIA scoping exercise.

Sustainability Principle: Waste 8.14 The development should seek to manage construction waste in a sustainable way by :

following the UK waste hierarchy during the construction and operation of the development, with the objective to reduce, prepare for re-use and recycle material in advance of energy from waste and disposal;

meeting specific waste design requirements in accordance with the relevant standards set out under the Code for Sustainable Homes and the appropriate BREEAM scheme, while having ;

preparing and implementing a Site Waste Management Plan; and

making as assessment of waste within the Environmental Impact Assessment, and provide a discussion on the proposed approach to address the Waste Hierarchy within the Sustainability Statement.

Sustainability Principle: Quality of Life and Equalities

8.15 The development should seek to enhance well-being and quality of life for residents, workers and visitors during operation, while minimising potentially adverse construction phase impacts on local amenity and public health by: :

following a Construction Environmental Management Plan and meeting best practices under the Considerate Constructors Scheme with a score of 32 or above;

ensuring BREEAM and CfSH Health and well-being credits are maximised;

developing the scheme through appropriate consultation with the public and statutory consultees;

facilitating healthy developments through good levels of daylight;

ensuring opportunities for local procurement of goods and services is promoted in construction and operation;

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meeting with the principles of Secured by Design across the site; and

meeting Lifetime Homes standards for residential units.

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Development & Movement Proposals

Introduction 9.1 Based on an understanding of the Vision for the town centre47 and associated land use objectives (set out in Chapters 3 and 4), the design

and movement issues and objectives (set out in Chapters 5 and 6), and the constraints of service delivery arrangements, the council has identified an indicative level of acceptable development for these Sites. At this stage an indicative layout is not possible as this is dependent on the final access arrangements to the site. However, the council will rely on the design objectives established in Chapter 5 when assessing any proposal which comes forward.

Development Proposals 9.2 Table 1 below sets out guidelines regarding the possible scale and mix of uses for the sites within the Brief area and takes the Sites

Allocation in the Sites DPD as a starting point. Any redevelopment scheme must demonstrate how the scale and mix of uses proposed will meet the Vision and Objectives for the town centre as a whole and the Village Quarter as set out in development plan for the borough.

9.3 The council recognises that this is an urban town centre site with high PTAL levels and therefore a high density residential led scheme would

be preferred and appropriate in this location. However, any detailed scheme that comes forward will need to be based on an assessment of local context and demonstrate how it meets the urban design objectives set out in the Brief.

9.4 Notwithstanding this, the Council recognises that in line with the NPPF, plan making proposals need to be realistic and ensure that needed development is deliverable. Therefore, given the abnormal costs associated with the Sites, objectives regarding the renewal of North Sutton (which includes the removal of the Gas Holders) it is recognised that a residential led scheme may not be realistically deliverable. Accordingly, a retail led scheme may be acceptable provided it does not have an adverse impact upon the role and function of Sutton as a Metropolitan town centre.

9.5 Where a non residential led scheme is proposed and appropriate robust viability evidence provided, in order to meet the corporate objectives for Sutton town centre, the indicative development proposals put forward in this Brief suggest the creation of a destination retail offer to the west of the Sites and a balance of smaller mixed uses to the east to help deliver the Village Quarter.

9.6 Should a convenience retail led scheme be taken forward on the Sites, it is considered that other uses (including commercial, leisure, residential or community the retail frontages) of any convenience superstore in order to minimise the visual impact of its bulk and to contribute to meeting the objective of active frontages. This

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Set out in CPS Policy PMP6

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has been done successfully elsewhere in Sutton town centre (1-16 Grosvenor House on West Street, which wraps around the car park on St Nicholas Way, see PHOTO xx) and elsewhere with convenience stores. This example should eb followed within the North Sutton Sites.

9.7 The percentage floorspace for comparison goods within the large footplate store will be capped at 30% of the net retail sales area and, although chemists are classified as comparison retailers they will be specifically excluded from the superstore. In addition, service retail (i.e. dry cleaning, photo processing, opticians and post office services) will not be allowed in the convenience superstore as these services and uses would ideally be located in smaller units within the Village Quarter and their location outside of the superstore should be part of the strategy to secure linked trips. Furthermore, whilst categorised as convenience retailers, key cutting and shoe repairs will also be excluded for the same reason.48

9.8 9.9 9.10 Applications for taller buildings (up to 8 storeys) will have to justify how such proposals will be acceptable in terms of setting, urban design,

sustainable design and construction, the appropriate mix of uses, and provision of safe, attractive and comfortable amenity/open spaces designed to support the proposals.

Table 1 Development Schedule

Proposed Uses Indicative Level of Development

Residential

Development of up to 360 residential units

Retail/Restaurant/Café (A1-A5 uses) Retail to include Service Retail

A minimum of 7,700 sqm gross retail floorspace although the split between comparison and convenience retail will be dependent upon impact on the vitality and viability of Sutton and an assessment of the impact of any significant proportion of convenience on Suttonfunction as a Metropolitan centre.

Hotel

120 bed spaces (approx. 3,700 sqm)

Commercial Leisure/Community Uses50

Opportunities should be identified for these uses which might, be particularly appropriate uses to wrap along the southern and eastern edges of the convenience retail superstore. The quantum of development will be dependent upon the level and mix of other uses.

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These classifications are based on GOAD categories used by the GLA 50

Such as crèche/nursery or private tuition facilities

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Proposed Uses Indicative Level of Development

A Public Square

Approximately 1,000sq m (this figure is based on an assessment of Trinity Square in Sutton town centre and capacity of the site to accommodate space)

Play space

The GLA requires 10sqm of useable child play space per child under 5 with under-5s play space to be provided on site. Therefore a calculation of child yield will have to be undertaken based on the final number and mix of homes proposed in order to identify the total play space.

Public Realm Enhancements 9.11 Public realm enhancements will be key to creating a unified scheme which can successfully be integrated both into the Village Quarter and

the Exchange Quarter to the south. Accordingly, the Brief area extends to and includes the public realm adjoining the boundaries of the site and the council will expect detailed public realm proposals to be considered as part of a full planning application. All the objectives set out in Chapter 6 regarding public footways and highways must be addressed as part of this. In addition, the installation of public art and significant

tree planting/landscaping must feature as an integral part of the redesign of the public realm. Indicative Access/Movement Proposals

Access Proposals 9.12 Given the highways and access aspirations for these Sites, particularly the need for enhanced pedestrian connectivity, the council must be

particularly careful that any proposal which does not implement the highways schemes set out on the Proposals Map still meets the established overriding objectives for accessibility. Accordingly, a number of different access proposals were set out as part of the draft Brief in order to explore a wide range of access options and these were consulted upon. In response to the consultation and to concerns it was decided that the two options which identified the possible use of Vale Road as an access for the food superstore should be deleted from any revised Brief. However, TfL advised, and it was agreed, that a range of access options should still be retained in the Brief in recognition that further refinement and modelling would be required at the application and transport assessment stage in order to help arrive at the best option which meets all objectives and in response to the final decision over the amount and mix of uses.

9.13 The plan in Figure 17 sets out an illustrative diagram of the access and movement option. The key element of this proposal is the identification of split access to the Sites in order to remove as far as possible traffic generated by the development from the High Street/Crown Road junction. This would be achieved by having an entrance/exit on Crown Road, almost opposite St Nicholas Way, to serve vehicles from the south and an entrance/exit onto the High Street south of Burnell Road which would serve vehicles from the north. The entrance from Crown Road would be direct into the store. This arrangement would meet the key objective of securing visual and pedestrian links between the Sites and the High Street to the south and facilitate the creation of a significant open space on the south eastern corner of the site.

9.14 The second highways option is a modification of the preferred option set out in Figure 17. Whilst the access from the High Street would remain the same, the access from Crown Road would be an The access from Cown Road would not be directly into the superstore and therefore would not impact on the level of parking provision. This option would continue to meet the objective of split access.

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The final alternative access option envisages the creation of a main vehicular access point at the south-eastern corner where Crown Road and the High Street meet. This access point would serve all the access needs for the superstore. A minor access point might also be required off the High Street and off Vale Road to serve the smaller retail units/residential units/the hotel.

9.15 On the evidence presented to date, all alternatives proposed would:

secure the proposed extension of the London Tramlink to Sutton town centre;

separate out the servicing access for a food superstore which would be located from Crown Road to the west of the site;

require the installation of new signals/junctions and TfL has indicated that these will have to be judged in the context of the wider highway network and in relation to London Plan Policy 6.11 However, TfL has indicated that measures including SCOOT controls are likely to be necessary in this location to control signals in a co-ordinated way according to demand; and

involve a significant change to the Crown Road/High Street frontages which in turn will require a major upgrade and improvements to site frontages, the public footway and the carriageway. These improvements must be secured as part of the redevelopment of the Sites.

Parking

9.16 The parking standards expressed in both the London Plan and the Sites DPD are broadly the same except for hotel standards. The two sets of standards are set out below for ease of reference. In to balance car parking provision with other objectives for this site, TfL strongly encourages the development to be as car free as possible and this aspiration is supported by the council.

Use London Plan (2011) Standards (Where PTAL of 5/6)51

Sutton LDF (2012) Standards

Convenience Retail Uses

1 space per 25-38sqm of gross floorspace

1/35 sqm

Other Retail Uses

1 space per 50-75 sqm of gross floorspace

1/75 sqm

Hotel

Parking should be limited to operational needs, parking for disabled people and that required for coaches, taxis, delivery and service vehicles.

1 space per bedroom

Leisure Uses Parking should be limited to operational needs, parking for disabled people and that required for

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Standards for parking in suburban town centres are currently being reviewed by the Mayor and any changes adopted will be reflected in this Brief if the timescales are appropriate.

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coaches, taxis, delivery and service vehicles.

Play groups/day nurseries

1 space per 4 staff

A2-A5 Uses

None None

Residential Uses

Significantly less than 1 space per unit

1 space per unit although these would not be allocated

9.17 As the car park associated with the convenience food superstore will provide more than 50 spaces it should be made available as public

parking (the provision of the Sites DPD Appendix 3 will apply).

9.18 In addition:

provision should be made available for a car club on the sites and the number of spaces will be determined as part of the application, once the detailed level of development has been established;

Adequate on-site parking spaces must be made available for disabled people;

10% of all parking spaces for retail development and 20% of spaces for the residential units must be suitable for electric vehicles with additional passive provision made available for the future in order to future proof the development;

An appropriate proportion of motor cycle spaces must be provided. Pedestrians

9.19 TfL will encourage any access/movement option to include cycle priority measures and controlled pedestrian crossings. The form of such facilities should be subject to the modelling results and expected pedestrian flows which should be built into analysis to ensure pedestrian refuges can accommodate expected levels of demand whilst balancing other public transport and traffic factors. Public Transport

9.20 TfL has also indicated that a bus lay-by within any design will not be accepted and provision in the form of an on-street bus cage, which can accommodate an increased level of demand, is required. Due to the likely level of activity at this stop, a minimum cage length of 48m will be required.

Development Constraints if the Gas Holders are not Decommissioned 9.21 Sites. However, given the costs

and complexities of decommissioning such a significant service the council recognises that this may not occur. In this scenario any redevelopment of the eastern portion of the site would be constrained by the proximity to a hazardous installation and the HSE would advise accordingly.

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NOTE: all Previous Figures showing the 5 Highways alternatives are to be deleted from the Brief

Agenda Item 11Page 285

1

TEN

Application Requirements, Planning Conditions and Planning

Obligations/CIL 10.1 This section of the Brief aims to provide guidance on the likely requirements regarding the scope of material which the council will expect to

be provided as part of any planning application and sets out the scope of possible Section 106 Obligations/Community Infrastructure Levy (CIL) Contributions.

10.2 In advance of submitting any formal applications to the council for consideration, it is anticipated that given the scale and significance of the redevelopment proposed the applicant should enter into a Planning Performance Agreement with the council regarding the programme of consideration of proposals, from pre-application discussions through to determination.

10.3 Furthermore both Transport for London52 and the Greater London Authority53 have indicated that they would welcome a collaborative working approach with applicants as part of their formal pre-application process. The council endorses this approach, particularly given that these bodies will be statutory consultees on any future planning application(s).

10.4 Finally, at an early stage in the preparation of detailed proposals for the redevelopment of the Sites developers/applicants are also strongly encouraged to ensure a Registered Provider of Affordable Housing is signed up in order to ensure issues regarding detailed design requirements are resolved at an early stage.

Planning Application Requirements 10.5 Planning applications submitted in respect of development proposals for the Sites covered by the area of this Brief will require a range of

documentation and supporting information to enable the Council to determine the proposals compliance with the relevant legislation and guidance. It is expected that planning application proposals will be submitted in accordance with this Brief and the prevailing planning policies at the time.

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Transport assessment best practice guidance and pre-application advice please visit http://www.tfl.gov.uk/businessandpartners/15393.aspx

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In order to request pre-application advice developers should contact Gill Lawton at the GLA: gill.lawton@london.gov.uk or telephone 020 7983 4523

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10.6 Having evaluated the characteristics, location and potential impacts of any proposed development in line with the principles set out in this Brief against the screening criteria in the (IN FULL) 2011 Regulations, the Council considers that an Environmental Statement should be submitted in support of any application. A number of the detailed requirements set out below reflect this view.

10.7 The council will expect the red-line site boundary of any applications to match the boundaries of the Brief area. This will ensure that all the necessary highway works, which will be crucial in the success of the scheme, are considered as part of the application. Having considered the assessment of the issues set out in the Chapters above, the council has identified a range of technical and supporting documents which should accompany any planning application. This list is summarised below:

XB in order to inform this Brief, the council will expect planning applications to be accompanied by an up to date Retail Assessment to ensure that any impact would not lead to a significant adverse effect sufficient to justify refusal under the NPPF. Any such assessment will need to review all the relevant assumptions used in the baseline Town Centre and Retail Statement to ensure that they continue to reflect prevailing conditions at the time of the submission, including, importantly, the assumption about the design year of 2018 for the operational start date of any major store;

A full and robust Viability Assessment based on testing a number of different scenarios. This will be independently assessed as part of the planning application process;

A comprehensive Design Statement. This should demonstrate how development proposals meet the urban design and movement objectives set out above. This Design Statement should include a detailed Public Realm and Landscape Strategy which sets out how all public space within the Brief area will be treated as part of the implementation of any planning permission. This should also demonstrate how crime prevention measures have been considered in the design of the proposals and how the design reflects the attributes of safe, sustaina

An Access Statement demonstrating how the principles of inclusive design, including the specific needs of disabled people, have been integrated into the proposed development and how inclusion will be maintained and managed;

A Transport Assessment detailing the impacts of the development on the surrounding transport infrastrucutre. Whilst the scope of this should be agreed in advance with the council, it is considered that any document should be prepared Assessment Best Practice Guidance ;

Appropriate Travel Plans (i.e. residential, employee etc) ce (A New Way to Plan) and each should additionally include a delivery and servicing element. TfL expects full docuemtns to be produced from the outset and these should aim to reduce car journeys, minimise highway congestion, take an approach to minimise on site car parking, promote sustainable modes of travel and develop pedestrian and cycle friendly design;

A Parking Strategy and a Parking Management Plan;

A Delivery & Servicing Strategy which should identify how existing arrangements will be protected or alterations secured as well as dealing with the servicing arrangements for the new development. Swept path analysis for these delivery vehicles should be included;

A detailed site contamination investigation report, risk assessment and remediation strategy;

A Sustainable Design and Construction Statement and an Energy Assessment;

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An Energy Assessment demonstrating how minimum targets for carbon dioxide emissions reduction will be met within the framework of the energy hierarchy;

A Flood Risk Assessment and a Drainage Strategy to address surface water and sewerage drainage issues;

An Ecological Assessment;

A daylight and sunlight study;

A Health Impact Assessment (HIA) will be required to ensure that new development takes every opportunity to contribute to the health and wellbeing of users and residents. Accordingly, the HIA should set out the physical, environmental and social impacts (beneficial and detrimental) of the proposed development, including impacts during development;

Heads of Terms relating to the S106 Agreement;

A Phasing Strategy; and

A full heritage assessment, including archaeological evaluation of the Sites.

10.8 This is not an exhaustive list and through the Pre-Application processes additional requirements may be identified.

Planning Conditions 10.9 The council will consider imposing an appropriate range of planning conditions on any planning permission including hours of operation for

any convenience superstore and the A3-A5 uses.

Possible Scope of Planning Obligations/CIL 10.10 In accordance with NPPF, the Council will seek a number of planning obligations arising from the development to be secured by legal

agreement. Regulation 122 of the CIL Regulations requires that such obligations are necessary to make the development acceptable in planning terms, are directly related to the development and are fairly and reasonably related in scale and kind to the development.

10.11 gh the use of planning obligations that all new development meets on nd procedures

relating to the nature and extent of planning ob

10.12 Whilst the specific obligations arising from any development on the Sites will be considered both leading up to and as part of the consideration of any planning application, the list below provides guidance to developers as to the type of planning contribution that might be likely to be sought:

A Local Employment and Training Agreement to facilitate maximum local employment and training opportunities and support for the development of a business hub;

Public realm improvements (street paving, furniture, signage and landscaping). Provision of additional seats, suitable for use by elderly and the less mobile, will be required in order to secure accessibility for those who are less mobile;

A contribution towards public art as part of the public realm improvements;

A contribution towards the development of a small business hub, which could also be used by the 3rd Sector;

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All travel plans must be secured as part of the S106 agreement in order to secure the monitoring and implementation of Smarter Travel objectives;

A contribution towards upgrading public transport services including capacity upgrades to bus services and improvements to bus shelters in close proximity to thotel by way of a screen and broadband connection;

Contributions towards the establishment and operation of a car club scheme (in accordance with th

An affordable housing contribution (if not provided on site);

A contribution towards improvements to the Collingwood Estate;

A contribution towards improvements to the Green and Collingwood Recreation;

An education contribution; and

A health contribution.

10.13 In addition to this list, the Mayor of London is committed to supporting a competitive and diverse retail sector including small and medium sized enterprises ( by the London Plan to consider imposing conditions or seeking contributions through planning obligations where appropriate, feasible and viable to provide or support affordable shop units suitable for small or independent retailers and service outlets and/or to strengthen and promote the retail offer, attractiveness and competitiveness of centres.54 The council will consider the need for such a contribution in order to help other small businesses within the Village Quarter and thinks that the funding might best be used to secure shop front improvements.

10.14 The above is not an exhaustive list and a full list of the type and scale of planning obligations normally sought from new developments is set out in SPD5: Planning Obligations. The specific obligations sought at the planning application stage will be negotiated between the council and the applicants and will be based on the details of the scheme as proposed at that time. However, enhancements to the public realm will be critical to the success of this area and therefore, will be prioritised when considering S106 contributions.

10.15 The Mayor has introduced a London- wide Community Infrastructure Levy (CIL) to help implement the London Plan, particularly policies 6.5 and 8.3. The Mayoral CIL formally came into effect on 1 April 2012, and it will be paid on commencement of most new development in Greater London that was granted planning permission on or after that date. The Mayor has arranged boroughs into three charging bands. The rate for Sutton Council is £20 per sq. m. The required CIL should be confirmed by the applicant and council once the components of the development or phase thereof have themselves been finalised.

10.16 In addition, the council is in the process of preparing a Local CIL and will apply the provisions of this if it is adopted prior to the determination of the application.

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And in line with the Portas Review

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10.17 In addition to the use of Obligations and CIL, the council is likely to use a range of planning conditions to proactively manage the impacts of any development but specifically, the impacts of any proposed superstore development. For example, conditions will imposed which: specify the maximum net retail sales area; limits any internal alterations which might otherwise increase the amount of retail floor space; limits the range of goods sold and controls the split between comparison and convenience; and specifies the timing of the delivery of goods.

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6

ELEVEN

Implementation & Delivery

Implementation 11.1 This Brief provides for the comprehensive redevelopment of land and property within the Brief area even though it is not currently in a single

ownership. It is currently anticipated that the sites will come forward for development at the same time in order that the full development potential of individual sites can be maximised (building footprint and height). However, should the Gas Holders site not be decommissioned in a timeframe suitable to secure a comprehensive scheme any proposals to develop the eastern part of the sites must demonstrate how that scheme will not prejudice bringing forward the redevelopment on the National Grid/Southern Gas Network sites, including the demolition of the gas holders and the remediation of the land. In this respect the council will expect a full planning application to be submitted for any proposals which only cover part of the Brief area.

11.2 Developers will be required to minimise the impact of building works on the operation of Sutton town centre, and, the council will expect:

A programme of works to minimise disruption to the operation of the gyratory;

Alternative servicing arrangements to have been secured for any operations which will be negatively affected by the proposed development both during and after the development; and

Demolition and redevelopment of existing buildings to be carefully managed to minimise impact on amenity.

Delivery 11.3 Given the range of complex landownership issues and the council landownership and highways responsibilities in the Brief area, the

successful delivery of the proposals will be dependent upon the continued partnership approach between developers, landowners and the council.

11.4 There may be some instances where the council might consider using its Compulsory Purchase Powers in order to secure the redevelopment of the Sites.

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Appendix 1: Tram tracking

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Glossary Retail Definitions: Metropolitan Centres: Metropolitan centres serve wide catchments which can extend over several boroughs. Typically they contain at least 100,000 sq.m of retail floorspace with a significant proportion of high-order comparison goods relative to convenience goods. These centres generally have very good accessibility and significant employment, service and leisure functions. Development proposals should maintain the retail floorspace quantum expected of a metropolitan centre (see the table below). The London Plan makes it clear that LDFs should take a proactive approach to bring forward capacity for additional comparison goods retailing particularly in Metropolitan centres.

Core Indicator Floorspace expected

Town Centre Classification -Metropolitan Centre (sq. m.)

Total town centre

floorspace (retail, service

and leisure) sq.m.

100,000+

Total retail floorspace

(sq.m)

85,000+

Total comparison

goods retail floorspace

(sq.m)

65,000+

Comparison goods

retail as a percentage of total retail floorspace

75%+

Convenience goods

retail as a percentage of total retail floorspace

<15%

Estimated town centre turnover per annum (£m)

£300m+

Office floorspace 70,000+

From London Town Centre Health Check Analysis Report (December 2009) Supermarkets: self-service stores selling mainly food, with a trading floorspace less than 2,500 square meters, often with car parking.

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Superstores: Self-service stores selling mainly food, or food and non-food goods, usually with more than 2,500 sqm trading floorspace with supporting car parking. Comparison retail/shopping: the provision of items not obtained on a frequent basis. These include clothing, footwear, household and recreational goods. Convenience retail/shopping: the provision of everyday essential items, including food, drinks, newspapers/magazines and confectionery. Gross Retail Floorspace: The total built floor area measured externally which is occupied exclusively by a retailer or retailers excluding open areas used for storage, display or sale of goods. Net Retail Sales Area: The sales area within a building (i.e. all internal areas accessible to the customer) but excluding checkouts, lobbies, concessions, restaurants, customer toilets and walkways behind the checkouts. Design Year: conventionally taken as the second full year of trading after opening of each phase of a new retail development, but it may take longer for some developments to become established. Other Important Definitions: Active Street Frontage: Active frontages: It is important that buildings present active frontages to the public spaces as far as possible. Active frontages mean ground floor shop windows or transparent frontages so that the activity within the building is visible from the street. Ideally this should also include opportunities for activity to spill out onto pavements through street cafes and shop displays. These active frontages should ideally relate to ground floor retail spaces, cafes, restaurants and bars. However they can also include hotel public facilities, office receptions, galleries and public facilities. These should, where possible, be included in the ground floor of residential and office development in the Brief area. Public Realm: This is the space between and within buildings that is publicly accessible, including streets, squares, forecourts, parks and open spaces. One Planet Living: a partnership between Bio-Regional and World Wildlife Fund based on 10 guiding principles of sustainability. The vision of one plant living is a world in which people everywhere ca

Low Carbon Zone: geographical area where over a set period of time a range of coordinated activities take place, involving a breadth of stakeholders, with the express purpose of reducing carbon emissions, increasing energy efficiency and alleviating fuel poverty.

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Background Documents

FirstPlan (March 2012) & Supplementary Documentation (May 2012)

- Chase and Partners (March 2012)

i-Transport LLP (Jan 2012)

- i-Transport LLP (March 2012)

Peter Brett Associates (May 2012)

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age 2

95

11

Agenda Ite

m 1

1P

ag

e 2

96