Hackney unitary development plan - Hackney Council

Foreword by Chair of Environmental Services Committee The adoption of the Unitary Development Plan on 5 June 1995 was the final product of a process of intensive work which commenced in 1991, with the objective of preparing a development plan to guide physical change in Hackney over the next five to ten years. I would like to thank all the interested individuals and organisations who participated in the UDP process and helped to refine the policies and proposals in the Plan. Development Plans have been given increased status by the Government in the assessment of planning proposals. Therefore the UDP will be vitally important to the future of the Borough and, together with other Boroughs UDP’s, it will provide the basis for planning the future of London. The policies of the Plan seek to address the needs of the people of Hackney and to reflect the Borough’s diverse cultural make up. Enhancing the quality of the environment, creating more job opportunities and providing good public transport links are key issues affecting Hackney which the UDP can help to achieve. It also provides clear planning policies to guide and assist the major urban regeneration initiatives which are underway across the Borough. The Council has sought to write the Plan as clearly as possible, and to this end have included a glossary to explain the meaning of some of the more technical words. If you do have any queries about the Plan I would urge you to contact the Town Planning Service (Policy Group) who will be pleased to assist you (Tel. 0171 418 8072). To ensure that the Plan remains relevant to Hackney’s changing needs and circumstances, the Council will monitor the effect of its policies and review these where necessary. In particular, an environmental appraisal of the UDP will be undertaken and published for public discussion. I would welcome the involvement of local people and groups in these processes.

Councillor Philip Pearson

London Borough of Hackney Adopted UDP – June 1995

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Hackney Unitary Development Plan

Contents Introduction

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HACKNEY UNITARY DEVELOPMENT PLAN PART ONE

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Background — The Process of Change Strategic Assumptions and Areas of Major Opportunity Overall Strategy Equal Opportunities Policy Context Strategic Policies Implementation and Financial Resources Financial Resources Implementation of the Plan

10 12 13 13 14 16 20 20 21

HACKNEY UNITARY DEVELOPMENT PLAN PART TWO Chapter 1 Chapter 2 Chapter 3 Chapter 4 Chapter 5 Chapter 6 Chapter 7 Chapter 8 Chapter 9 Chapter 10 Chapter 11

25 Planning for Black and Ethnic Minorities Environmental Quality Housing Employment South Shoreditch Transport Retailing and Town Centres Open Spaces and Nature Conservation Community Services Arts, Culture and Entertainment Planning Standards

Schedule of Proposals Glossary


27 41 89 133 153 169 191 213 233 247 257 267 315

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Introduction What is a UDP? 1.

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The Hackney Unitary Development Plan provides the statutory framework to guide development and protect and enhance the environment of Hackney over the next five to ten years. It brings forward proposals for the development and use of land, and sets out the Council’s policies for making decisions on planning applications. It replaces the Greater London Development Plan (1976) and the Hackney Local Plan (1989). Unitary Development Plans (UDP) are a new type of development plan for the London Boroughs, and other Metropolitan areas, introduced by the Government in 1986. Each London Borough has to prepare a UDP after being given a Commencement Order by the Secretary of State for the Environment. H a c k n e y ’s Commencement Order was issued on 13 April 1990. The Government’s guidelines for UDP require policies and proposals to be limited to land-use and transportation matters, although these can be set in their wider economic and social context. UDP are to consist of two parts: Part I is to contain broad planning policies; part II the justification for these policies, together with more detailed policies, standards and proposals. How was the UDP prepared?

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The UDP was placed “on deposit” on 12 June 1992. A Public Local Inquiry into objections to the Plan was held in Hackney Town Hall from 9 February to 20 April 1993. The Inspector’s Report was received by the Council in February 1994. The Post-Inquiry modifications were placed “on deposit” on 30 September


1994. Following consideration of the further objections, the Council resolved to adopt the Plan on 5 June 1995. What does the UDP contain? 6.

The introduction sets out the purpose of the Plan, its format, how it should be used and read, and how the Hackney Local Plan has been incorporated into the UDP.

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Part I sets out a broad development and land use strategy in which strategic land use policies provide the framework for the detailed policies of part II. It also explains how the Council will seek to implement the Plan.

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Part II justifies the strategic policies of Part I and provides detailed development control policies, planning standards, and proposals which the Council will take into account when considering planning applications.

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In both parts I and II, policies are grouped together on a topic by topic basis. Each policy or group of policies has a reasoned justification and can be clearly distinguished from other text.

10. This Plan incorporates the Hackney Local Plan 1989 in part II, this is a requirement of legislation. Because the Hackney Local Plan has been subject to amendment, and in order to ensure clear presentation, the Hackney Unitary Development Plan is presented as a single document. 11. The proposals map shows the location of proposals where there is likely to be development during the plan period. It also shows the areas where particular policies apply. The Map is at 1:8,000 scale with two inset areas: Dalston and South Shoreditch, where larger scale 5

plans are required for clarity. The map is an integral part of the policies and proposals of the UDP. 12. The schedule of proposals found within Part II gives details of the proposals shown on the proposals map. It is also arranged on a topic by topic basis. 13. Each chapter in Part II begins with the strategic policies of Part I together with their justifications, which establish the C o u n c i l ’s broad development and land use strategy. The policy context is then set out, followed by detailed policies standards and proposals. For the complete picture on any topic the strategic policies should always be read in conjunction with any relevant detailed policies, standards and proposals. How to use the Plan 14. If you are interested in a particular site or building refer to the proposals map. This will show whether the site is covered by a specific policy or proposal in the Plan. The proposal number refers to the schedule of proposals, where the entry will give details of the proposal. 15. If the site or building is not covered by a site or area wide policy or proposal, then you should look at the policy chapter covering the type of development in which you are interested. 16. It may often be necessary to consult the Planning Standards chapter which sets out minimum technical standards against which the Council will assess your planning application. The Council will also publish a number of Supplementary Planning Guidance Notes which will help to explain how the Council will implement its policies. These Notes will not form part of the UDP. The Hackney UDP and London 17. All 33 London boroughs including the City of London are preparing UDP. Some UDP have already been adopted; each 6

reflects particular policy concerns. In general only residents and firms located within each Borough are consulted on draft UDP; there is no formal consultation on a London-wide scale. 18. The Government has powers to ensure that UDP are consistent, and that together they will form an effective plan for London as a whole. Hackney’s other plans 19. The UDP is one of the Council's key corporate plans and strategy statements. The other major corporate plans and strategy statements are: — the Environmental Policy and Strategy — the Economic Development Plan — the Transport Policy and Programme — the Education Development Plan — the Care in the Community Plan — the Recycling Plan 20. The UDP will provide the land use and development framework for all of these and will encompass their policy concerns. Additionally it has been prepared in the knowledge of other organisations’ plans for Hackney such as those of the Health A u t h o r i t y, the Waste Regulatory Authority, London Transport, and the Lee Valley Regional Park Authority. 21. The UDP will also address other corporate concerns of the Council such as its commitment to reducing poverty and helping those suffering from disadvantage, such as people with disabilities, women, lesbian and gay men and black and ethnic minorities. Hackney 2000 22. Hackney 2000 was set up in 1991 to forge a partnership between the Council and other agencies within the Borough. It aims to create a vibrant, cleaner, greener, safer, more prosperous Hackney by the year 2000. It is the umbrella under which schemes such as Dalston City Challenge, London Borough of Hackney Adopted UDP – June 1995

the Comprehensive Estates Initiative (CEI) and the Heart of Hackney regeneration projects have all been launched. 23. Since the Hackney 2000 Partnership was established with local businesses, it has grown to embrace a network of o rganisations including the Police, the Health Service, community organisations and providers of training, transport and the arts. Creating this dynamic network has enabled the Council to draw into the Borough the extra investment and resources to create jobs, provide training and generally boost the local economy. It has put the Council in a stronger position to make the case, with its partners, for new Central Government funding and for European Union funds. Timescale and Review 24. The policies and proposals of the Plan are intended to be effective for between five and ten years. Some of the longer term policies such as those concerned with the protection of metropolitan open land are expected to continue indefinitely. However the Council recognises that circumstances change and there will be a need to review the Plan to keep it up to date. The Council will consider the need to make interim changes or undertake a full review of the Plan in the light of changing planning trends and issues which affect the use and development of land.


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Part One Background – The process of change

Implementation and Financial Resources

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Financial Resources

Hackney’s People Hackney’s Development Hackney as Part of London

Strategic assumptions and areas of major opportunity ● ● ● ● ● ● ● ● ●

East London Line Extensions Chelsea-Hackney Tube Line CrossRail Channel Tunnel Rail Link The Hackney to M11 Link Road South Shoreditch Dalston Town Centre Hackney Wick Stoke Newington Reservoirs

Overall Strategy

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Council Expenditure London Borough of Hackney Capital Programmes Scope for Private Investment Urban Regeneration Partnerships

Implementation of the Plan ● ● ● ● ● ● ●

Planning Powers Planning Applications Listed Buildings, Conservation Areas and Archaeology Tree Preservation Orders Enforcing Planning Policies and Decisions Positive Action The Council as a ‘Pressure Group’

Equal opportunities Policy Context ● ● ●

National Policy Context Regional Policy Context Metropolitan Policy Context

Strategic Policies ● ● ● ● ● ● ● ● ●

Environmental Quality Housing Employment South Shoreditch Transport Retailing and Town Centres Open Spaces and Nature Conservation Community Services Arts, Culture and Entertainment


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Background – The process of change

person households, the highest figure in London. Hackney also has a large number of very large family households. 5.

Generally household incomes are low. Unemployment is very high at 23% with a male rate of 31% and a female rate of 13% (February 1995). Unemployment in Hackney has been increasing since February 1990 when the overall rate was 13.7% and is at a much higher level than that of London as a whole. In some wards male unemployment can reach up to 42%.

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There is a high level of dependence upon the public sector for housing. Around 59% of households occupied either Council or housing association accommodation in 1991. The level of owner occupation is low but has been increasing with the continuing reduction in the private rental sector brought about through conversions. There are many dwellings which are unfit, lack basic amenities, or are in need of substantial repair.

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In 1991 42% of Hackney residents in work worked in the Borough and these residents made up 33% of the total numbers of people employed in Hackney. The main sectors of the Hackney economy are manufacturing, services and distribution. Manufacturing although still important has been in decline since the 1950’s.

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In 1991 manufacturing provided over 11,000 jobs, 16% of the total. Services such as banking, finance and insurance provided over 17,000 jobs (24%) and other services provided 25,000 jobs (36%); these numbers have reduced following the boundary change in 1994 which moved all of the Broadgate development into the City. Distribution provided 9,000 jobs (13%), largely in retail shops. The 58% of residents who worked outside the Borough lar g e l y found work in the City, the West End and in adjoining Boroughs.

Hackney’s People 1.

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Hackney’s population was estimated in 1994 to be 192,000, a small increase since the 185,000 recorded in the 1981 Census. This population growth is expected to continue over the next ten years and represents a significant reversal of a steady trend of population decline since the peak of around 390,000 in 1901. In addition to changing birth and death rates there have been major flows of people into and out of Hackney over this period. Starting in the 1950's there has been large scale immigration into Hackney from the New Commonwealth and in particular from the Caribbean, Africa, India, Pakistan, Bangladesh and Cyprus. Other inflows have come from Ireland and most recently from Turkey. In the north of the Borough, particularly in the Stamford Hill area, there is a substantial Orthodox Jewish community. Estimates based on the 1991 census and other information suggest that almost half of the population of Hackney can be considered to be of black or ethnic minority origin. It is expected that this percentage of the population will increase in future due to the age structure of these communities, their generally higher birth rates and by a continuing addition from abroad. This Plan seeks to address the specific needs of these communities for social, community and religious facilities and in respect of their housing needs. In contrast to the small increase in the overall population there has been a large increase in the number of households. The 1991 Census recorded almost 76,000 households in Hackney compared to 68,500 in 1981. Of these 36% were one


Hackney’s Development 9.

H a c k n e y ’s existing built form, road network and pattern of land uses are the result of a long process of incremental development and change. Many main roads for example follow the line of Roman roads or the tracks which connected the small villages of medieval Hackney. Apart from areas affected by major development such as of f i c e developments in the Shoreditch area and the large post war housing estates, Hackney’s built form and pattern of land uses remain very much as they were in the late nineteenth century when Hackney became fully built up.

10. This process of largely unplanned development has left Hackney with a rich heritage of fine architecture, historic buildings and attractive open areas and its own unique character as part of a wider inner and central London. However there are also areas of dereliction and poor environment. The Council recognises the importance of a positive approach to the environment in regenerating the Borough as a place to live and work and to restore confidence in its future. 11. Throughout the Borough there is a great mixture of different land uses with few identifiable use ‘zones’. This helps to give vitality and diversity to the Borough but can also cause conflict between the needs of different land uses, and in particular means that the Council has to carefully assess and balance the impact and need for new development on the amenity of adjoining residential areas. Hackney as Part of London 12. Hackney is an inner city Borough located between Haringey and the City of London, and Waltham Forest, To w e r Hamlets and Islington London Boroughs. In contrast to outer London Boroughs much of Hackney can be considered to be an area of community need. Its primary land use is residential providing a wide variety of accommodation for its diverse London Borough of Hackney Adopted UDP – June 1995

population. It has a large black and ethnic minority population whose communities have specific needs. Much of the housing stock is in need of repair and Hackney has a large number of homeless people. 13. Its employment structure is different from that of many Boroughs in that it has retained many traditional industries such as furniture, clothing and footwear which provide valuable local employment. In the south of the Borough, major office developments such as Broadgate (which was partly within Hackney until the 1994 borough boundary changes) have attracted workers into Hackney from all over London and the South East. Encouraged by these prestige schemes, o ffice development and the use of buildings for City-related activities has spread into the South Shoreditch area displacing older industrial uses. Unemployment in Hackney tends to be more than twice the level found in Greater London as a whole. 14. Hackney does not have a major shopping centre, although Dalston has the land and potential catchment area to support major retail expansion. Although Hackney residents have a relatively low level of car ownership they suffer from high levels of vehicular traffic with all its detrimental effects on safety, bus operation, health, and amenity. Public transport in Hackney is dependent on London Buses and British Rail. No underground lines directly serve Hackney which is the only inner London borough in such a position. This has hampered the effective integration of H a c k n e y ’s workforce into the wider London labour markets. 15. Hackney’s environment is a rich one with many conservation areas and buildings of special architectural and historic importance. It is well served by a network of parks and open spaces and in the Lee Valley has access to leisure facilities of strategic importance. Its Metropolitan Open Land helps to define the structure of London. 11

Chelsea-Hackney Tube Line

Strategic assumptions and areas of major opportunity 16. There are a number of major transport proposals which are likely to have a strategic influence on the course of development and the social and economic structure of Hackney over the next 5-10 years, and a number of areas of opportunity where major developments could take place. In supporting the major public transport proposals the Council will seek measures which would secure full accessibility for all to stations, rolling stock and public transport infrastructure; including the provision of proper public transport interchange facilities. East London Line Extensions 17. This proposal will extend the East London Line from north of Whitechapel to Highbury and Islington, with new stations at Bishopsgate, Hoxton, Haggerston and Dalston Junction. Interchanges will be sought at Bishopsgate with the Central Line (for which the Council will seek developer contributions) and at Dalston with the Chelsea-Hackney line. The route is protected by this Plan. The extension would run mostly on the disused Broad Street Viaduct. There are a number of associated development opportunities whose potential will be further enhanced by this new link. The extension of the East London Line will complement the successful City Challenge bid for the Dalston City Corridor by unlocking site development opportunities creating a more attractive and safer environment and improving accessibility. Trains on Hackney’s first underground line could be running by 1998/99, which would coincide with the planned opening of a new interchange on the existing East London Line with the Jubilee Line extension through Docklands. 12

18. The route for this new Tube line was safeguarded by law in 1991 and is included in this Plan. During early 1995 London Underground Ltd launched consultation on alternative route alignments; these alternative route options are not included. If the Government decides to change the route of the line this will be reflected in future amendments to the UDP. In principle the Council strongly supports the Chelsea-Hackney line as it would provide a direct rail link between Hackney and Central London. Construction of the new line could begin towards the end of the Plan period. CrossRail 19. This new line will pass to the south of Hackney. It will connect the main lines between Liverpool Street and Paddington, enabling trains to run through central London between Shenfield in the east and Reading and Aylesbury in the west including a new spur to Heathrow airport. CrossRail will not be operational for approximately 10 years. Channel Tunnel Rail Link 20. In late 1991 and early 1994 the Secretary of State for Transport announced decisions on the route for the new rail link. It will approach London’s second international passenger terminal at St. Pancras via Stratford, and will pass beneath Hackney. A station at Stratford could create development pressures in the nearby Hackney Wick area and bring employment generating development. However an international station could also attract substantially increased volumes of road-borne traffic which would exacerbate congestion, worsen safety and detrimentally affect the environment in Hackney. There could also be adverse effects on passenger train services on the North London line through Hackney arising from increased freight trains. Under current proposals the new link may be operational towards the end of the plan period. London Borough of Hackney Adopted UDP – June 1995

The Hackney to M11 Link Road 21. The Hackney to M11 link road will run between the A102(M) at Eastway and the M11 at Redbridge. Construction began in 1994 at the eastern end and is expected to be completed in 1997. It was opposed by the Council because of its overall detrimental impact on the Borough. It should provide for significantly improved vehicular access to the Hackney Wi c k area. However the Council will seek to implement measures to protect adjoining areas from the adverse effects of increased vehicular access. South Shoreditch 22. The Council wish to encourage regeneration of a number of key sites in the Shoreditch area for office/business development and to promote the growing role of the area for Arts, Culture and Entertainment ventures. This will reinforce the role of Shoreditch as a major location of jobs both for Hackney residents and for London as a whole. Dalston Town Centre 23. Sites exist in the Dalston town centre which are well suited for major retail development to reinforce Dalston’s existing retailing role. Of f i c e development and other uses suited to the centre are also encouraged. Hackney Wick 24. The vacant and underused sites at Hackney Wick represent a major development opportunity given the improvements to access which the Hackney to M11 link road will offer. Stoke Newington Reservoirs 25. The reservoirs and the associated filter beds offer unique potential for sensitive development which will respect their importance as open areas of great landscape quality, and for nature conservation.


Overall strategy 26. This Plan aims to provide a framework to guide the incremental development of land in Hackney through the 1990’s while at the same time enhancing the quality of the environment and ensuring that the needs of the local community and where appropriate, the wider needs of London are taken into account. 27. The main aims of the Plan are: (i) to guide development over the next 5-10 years; (ii) to provide a basis for assessing planning applications and taking enforcement action; (iii) to identify sites needed for development; (iv) to initiate and stimulate private development, ensuring that it is beneficial to local people; (v) to identify priorities for protecting and improving important buildings and environmental areas; (vi) to ensure that Hackney’s communities have an opportunity to influence the Council’s decisions on planning matters.

Equal opportunities 28. This Plan recognises that Hackney has a very diverse multi-cultural population with different interests, needs and aspirations. It includes many people from groups who suffer from discrimination and disadvantage including ethnic minorities, women and people with disabilities. 29. Section 55 of the Housing and Planning Act 1986 makes it unlawful for a local planning authority to discriminate against a person in carry out its planning functions. 13

30. This Plan addresses the issue of disadvantage in two ways: (i) Where particular needs are identified by black and ethnic minority and other disadvantaged groups requiring land and buildings, policies to provide these have been included; and (ii) all policies have been examined to ensure that they do not discriminate, directly or indirectly against black and ethnic minority and other disadvantaged groups. 31. The policies and proposals of the UDP will be, and the Council’s planning practices are, monitored to ensure that they do not discriminate, directly or indirectly against disadvantaged groups.

conservation. Up to date plans should be accorded considerable weight in the making of decisions on planning applications. 34. Planning Policy Guidance Note 12 details what development plans should contain, how they should be prepared, and how they relate to the environment. Section 54A of the Planning and Compensation Act 1991 strengthens the function of the development plan in the making of planning decisions by the Council, to the effect that in making any determination under the Planning Acts where regard is to be had to the development plan, the determination shall be made in accordance with the development plan unless material considerations indicate otherwise. Regional Policy Context

Policy context 32. This Section briefly outlines the national, regional and metropolitan policy context within which this Plan is prepared. More detailed subject based policy considerations are to be found within the Chapters of Part II of this Plan. National Policy Context 33. Government Planning Policy Guidance Notes (PPG), and Circulars establish the general policy framework for this Plan. They have been interpreted in the light of H a c k n e y ’s special character. The planning system is designed to regulate the development and use of land in the public interest. It should facilitate development whilst helping to secure amenity in the development and use of land. UDP provide a firm basis for making rational and consistent decisions on planning applications. They provide a means of co-ordinating the needs of development, including the provision of infrastructure and the interests of 14

35. Regional Planning Guidance for the South East (RPG 9) was issued in 1994 and covers the period 1991 to 2011. It stresses several broad objectives for planning policy: enhanced economic performance, sustainable development and environmental improvement, and opportunity and choice. Guidance recognised that maintaining and enhancing London’s role as a major world city was vital. It also recognised the East Thames Corridor (Thames Gateway) as presenting a major opportunity for growth. Metropolitan Policy Context 36. The Government published Strategic Planning Guidance for London to assist London Boroughs to prepare their Unitary Development Plans. This was based upon Strategic Advice from the London Planning Advisory Committee ( L PAC) which was agreed by all 33 London Boroughs. London Borough of Hackney Adopted UDP – June 1995

37. L PAC submitted its advice to the Secretary of State for the Environment in 1988. It contained a fourfold vision of London as: (i) a civilised city offering a high quality of environment for all Londoners; (ii) a world centre of international trade and business; (iii) a city of opportunities for all; (iv) a city of stable and secure residential neighbourhoods, capable of substantial community development. 38. The overall vision was then developed into objectives, an outline strategy and a series of strategic planning policies for London.

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sustain and improve the amenity of residential districts;

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allow for a wider range of housing provision;

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give high priority to the environment, maintain the Green Belt and Metropolitan Open Land, preserve fine views, conservation areas, surrounding countryside and the national heritage.

41. Revised Strategic Advice was provided by LPAC in 1994 and the Government issued Revised Strategic Guidance in Spring 1995. Future alterations to the UDP will take account of the Revised Guidance.

39. Strategic Planning Guidance for London was published in 1989. It envisaged London as a city “where enterprise and local community life can flourish, where prosperity and investment will continue to increase, where areas which had declined will find new roles, where movement will become easier and where the environment will be protected and improved”. 40. The objectives of Guidance are to: –

foster economic growth bearing in mind the importance for the national economy of London’s continuing prosperity;

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contribute to revitalising the older urban areas;

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facilitate the development of transport systems which are safe, efficient and have proper respect for the environment;

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maintain the vitality and character of established town centres;


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Hackney UDP Part One Strategic Policies Justifications for Strategic Policies can be found in Part II of the Plan. Environmental Quality ST1 THE COUNCIL WILL WELCOME NEW DEVELOPMENT WHERE IT IS MOST APPROPRIATE AND OF MOST BENEFIT TO LOCAL NEEDS AND/OR TO THE WIDER NEEDS OF LONDON, PROVIDED THAT IT DOES NOT HAVE AN UNACCEPTABLE DETRIMENTAL IMPACT ON LOCAL AMENITY OR THE ENVIRONMENT.

ST5 THE COUNCIL WILL SEEK TO ENSURE THAT ALL DEVELOPMENT CONTRIBUTES TO THE PROMOTION OF AN ENVIRONMENTALLY SUSTAINABLE PATTERN AND FORM OF DEVELOPMENT, AND AS FAR AS POSSIBLE, WILL CONSIDER THE LOCAL, NATIONAL, INTERNATIONAL AND GLOBAL ENVIRONMENTAL IMPLICATIONS OF DEVELOPMENT.

ST6 ST2 THE COUNCIL WILL SEEK TO ENSURE THAT ALL NEW DEVELOPMENT WILL BE IN KEEPING WITH, OR ENHANCE, THE LOCAL CHARACTER OF ESTABLISHED AREAS OF TOWNSCAPE.

THE COUNCIL WILL SEEK TO ENSURE THAT THE BUILT ENVIRONMENT IS FULLY ACCESSIBLE TO ALL, INCLUDING PEOPLE WITH MOBILITY DIFFICULTIES AND WHEELCHAIR USERS.

ST7 ST3 THE COUNCIL WILL, WHERE APPROPRIATE, SEEK PLANNING OBLIGATIONS TO SECURE RELEVANT PLANNING BENEFITS FROM NEW DEVELOPMENTS. PLANNING OBLIGATIONS WILL BE JUDGED APPROPRIATE WHERE THEY ARE NECESSARY TO THE GRANTING OF PERMISSION; RELEVANT TO PLANNING AND TO THE DEVELOPMENT TO BE PERMITTED; WHERE THE NEED FOR THE BENEFITS ARISES DIRECTLY FROM THE DEVLEOPMENT CONCERNED; AND WHERE THE BENEFITS SOUGHT ARE REASONABLY RELATED IN SCALE AND KIND TO THE PROPOSED DEVELOPMENT.

ST4 THE COUNCIL WILL SEEK TO ENSURE A HIGH STANDARD OF DESIGN THROUGHOUT HACKNEY IN RESPECT OF ALL DEVELOPMENT INCLUDING ALTERATIONS AND ADDITIONS TO EXISTING BUILDINGS.

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THE COUNCIL WILL PROTECT IMPORTANT VIEWS ACROSS AND WITHIN HACKNEY AND WILL RESIST EXCESSIVELY TALL BUILDINGS.

ST8 THE COUNCIL WILL PRESERVE AND ENHANCE LISTED BUILDINGS AND THE CHARACTER AND APPEARANCE OF CONSERVATION AREAS AND WILL HAVE REGARD TO THE BOROUGH’S ARCHAEOLOGICAL HERITAGE.

ST9 THE COUNCIL WILL PROTECT METROPOLITAN OPEN LAND.

ST10 THE COUNCIL WILL HAVE REGARD TO THE PROVISIONS OF THE LEE VALLEY REGIONAL PARK PLAN.


ST11 THE COUNCIL WILL CONTROL ADVERTISEMENTS TO PROTECT AND ENHANCE THE VISUAL AMENITY OF THE BOROUGH.

ST12 THE COUNCIL WILL PROTECT AND ENHANCE THE SPECIAL VALUE OF CANALS AND THE RIVER LEE AND LEE NAVIGATION.

A PATTERN OF DEVELOPMENT WHICH MINIMISES THE NEED TO TRAVEL AND MAXIMISES USE OF PUBLIC TRANSPORT; MORE ENERGY-EFFICIENT FORMS OF TRANSPORT; SITING, DESIGN AND CONSTRUCTION OF BUILDINGS WHICH MINIMISE ENERGY CONSUMPTION; DEVELOPMENT OF SOURCES OF RENEWABLE ENERGY;

ST13 THE COUNCIL WILL PROTECT AND ENHANCE SITES AND AREAS OF IMPORTANCE TO NATURE CONSERVATION.

DEVELOPMENT OF COMBINED HEAT AND POWER STATIONS IN ASSOCIATION WITH MAJOR DEVELOPMENTS.

Planning for Black and Ethnic Minorities ST14 ST19 THE COUNCIL WILL PROTECT TREES FOR THEIR AMENITY VALUE AND WILL ENCOURAGE NEW PLANTING.

ST15 THE COUNCIL WILL SEEK TO ENSURE THAT THE BENEFITS OF NEW TELECOMMUNICATIONS EQUIPMENT ARE ACHIEVED IN A MANNER WHICH MINIMISES POTENTIALLY ADVERSE ENVIRONMENTAL IMPACTS.

ST16 THE COUNCIL WILL SEEK TO ENSURE THAT DEVELOPMENTS DO NOT RESULT IN PROBLEMS OF POLLUTION, OR ARE A RISK TO THE HEALTH AND SAFETY OF THE PUBLIC.

ST17 THE COUNCIL WILL PROMOTE THE RECYCLING AND REUSE OF DOMESTIC AND COMMERCIAL WASTE BY MEANS OF RECYCLING AND WASTE STORAGE/COLLECTION FACILITIES.

ST18 IN IMPLEMENTING ALL PLAN POLICIES THE COUNCIL WILL SEEK TO ENSURE CONSERVATION AND EFFICIENT USE OF ENERGY. WHERE APPROPRIATE TO THE CHARACTER AND AMENITY OF THE BOROUGH; IT WILL ENCOURAGE:


THE COUNCIL WILL SEEK TO ENSURE THAT THE SPECIAL NEEDS OF PEOPLE WITH DISABILITIES, WOMEN, CHILDREN, BLACK AND ETHNIC MINORITIES, CULTURAL AND RELIGIOUS AND OTHER GROUPS, COMMUNITIES AND NEIGHBOURHOODS WHO SUFFER FROM DISCRIMINATION OR DISADVANTAGE ARE TAKEN INTO ACCOUNT IN THE IMPLEMENTATION OF THIS PLAN.

Housing ST20 THE COUNCIL WILL SEEK TO MEET LOCAL AND STRATEGIC HOUSING NEEDS BY ENSURING THE PROVISION OF HOUSING LAND, AND BUILDINGS SUITABLE FOR CONVERSION, SUFFICIENT TO ALLOW FOR AN ADDITIONAL 6,000 DWELLINGS BETWEEN 1987 AND 2001.

ST21 THE COUNCIL WILL SEEK THE PROVISION OF A RANGE OF DWELLING SIZES AND TYPES IN NEW HOUSING DEVELOPMENTS AND CONVERSIONS, TO SATISFY A WIDE RANGE OF HOUSING NEEDS INCLUDING ‘PRIORITY’ AND ‘SPECIAL HOUSING NEEDS’, AND HOUSING DEMAND.

ST22 THE COUNCIL WILL NORMALLY RESIST THE LOSS OF HOUSING THROUGH CHANGES OF USE AND REDEVELOPMENT. 17

ST23 THE COUNCIL WILL SEEK TO INCREASE THE STOCK OF AFFORDABLE HOUSING IN THE BOROUGH.

Employment ST24 THE COUNCIL WILL ENCOURAGE EMPLOYMENT GENERATING DEVELOPMENTS IN SUITABLE LOCATIONS WITH APPROPRIATE ROAD AND PUBLIC TRANSPORT ACCESS.

ST25 THE COUNCIL WILL NORMALLY RESIST THE LOSS OF EMPLOYMENT LAND AND PREMISES THROUGH CHANGES OF USE AND REDEVELOPMENT, ESPECIALLY WITHIN DEFINED EMPLOYMENT AREAS.

ST26 THE COUNCIL WILL ENCOURAGE OFFICE AND BUSINESS DEVELOPMENT SOUTH OF WORSHIP STREET AND IN THE BOROUGH’S TOWN CENTRES.

South Shoreditch ST27 THE COUNCIL WILL SEEK TO PROTECT AND ENHANCE THE MIXED EMPLOYMENT AND SPECIAL LAND USE CHARACTER OF THE SOUTH SHOREDITCH INSET AREA.

Transport ST28 THE COUNCIL WILL SEEK TO ENSURE THAT ALL DEVELOPMENT IS APPROPRIATELY RELATED TO TRANSPORT INFRASTRUCTURE WHICH WILL SERVE ITS NEEDS. THE COUNCIL WILL ACTIVELY DISCOURAGE DEVELOPMENT IN INAPPROPRIATE LOCATIONS.

FACILITIES THROUGHOUT THE BOROUGH, WHICH WILL REDUCE TRAVEL NEEDS AND BENEFIT THE LOCAL COMMUNITY AND ENVIRONMENT, BY PROTECTING AND ENHANCING THE BOROUGH’S MIXED LAND-USE CHARACTER. THE COUNCIL WILL ALSO SEEK TO IMPROVE ACCESSIBILITY WITHIN AND WITHOUT THE BOROUGH BY PUBLIC TRANSPORT.

ST30 THE COUNCIL WILL SUPPORT AND ENCOURAGE THE IMPROVEMENT OF PUBLIC TRANSPORT INCLUDING NEW TRANSPORT LINKS, BUS PRIORITY SCHEMES, IMPROVED INTERCHANGES AND ACCESS FOR PEOPLE WITH DISABILITIES.

ST31 THE COUNCIL WILL CONTROL THE PROVISION OF NON-RESIDENTIAL OFF-STREET CAR PARKING IN ORDER TO RESTRAIN COMMUTING BY CAR.

ST32 THE COUNCIL WILL MANAGE AND IMPROVE THE EXISTING ROAD NETWORK TO PROVIDE A SAFE AND EFFICIENT SYSTEM OF ROADS TO SERVE DIFFERENT FUNCTIONS AND TO SAFEGUARD THE INTERESTS OF ALL ROAD USERS AND AFFECTED RESIDENTS.

ST33 THE COUNCIL WILL SEEK TO PROVIDE SAFE AND CONVENIENT CONDITIONS FOR PEDESTRIANS INCLUDING PEOPLE WITH DISABILITIES, AND CYCLISTS, BY PROVIDING APPROPRIATE FACILITIES, AND BY SLOWING AND RESTRAINING TRAFFIC, AND WILL SEEK TO EXPAND THE BOROUGH'S CYCLE ROUTE NETWORK.

ST34 THE COUNCIL WILL SEEK TO RETAIN AND EXTEND LOCAL SERVICES, SHOPS AND EMPLOYMENT USES, IN ORDER TO REDUCE DEPENDENCE ON TRANSPORT (PARTICULARLY PRIVATE TRANSPORT).

ST29 THE COUNCIL WILL SEEK TO ACHIEVE AN ADEQUATE AND EQUITABLE DISTRIBUTION OF JOB OPPORTUNITIES, SERVICES AND COMMUNITY

18


Retailing and Town Centres ST35 THE COUNCIL WILL MAINTAIN A HIERARCHY OF SHOPPING CENTRES IN WHICH IT WILL ENCOURAGE THE PROVISION OF A WIDE RANGE OF SHOPPING FACILITIES, SERVICES AND LEISURE AND ENTERTAINMENT FACILITIES TO MEET THE NEEDS OF ALL SECTIONS OF THE COMMUNITY IN STRATEGIC AND MAIN SHOPPING CENTRES.

ST36 THE COUNCIL WILL SEEK TO MAINTAIN AND, WHERE POSSIBLE, ENHANCE THE EXISTING LEVEL OF LOCAL SHOPPING FACILITES SO AS TO ENSURE CONTINUED ACCESSIBILITY.

ST37 THE COUNCIL WILL SEEK TO PRESERVE AND ENHANCE THE ACCESSIBILITY, ATTRACTIVENESS, VITALITY AND CONVENIENCE OF SHOPPING CENTRES.

ST38 THE COUNCIL WILL ENSURE THAT MAJOR RETAIL DEVELOPMENTS INCLUDING FOOD SUPERSTORES ARE REASONABLY ACCESSIBLE BY PUBLIC TRANSPORT AND WILL NOT UNDERMINE THE VITALITY AND VIABILITY OF NEARBY TOWN CENTRES AS A WHOLE.

Open Spaces and Nature Conservation ST39 THE COUNCIL WILL RETAIN, CREATE AND PROTECT AND ENHANCE THE CHARACTER OF A HIERARCHY OF PUBLICLY ACCESSIBLE OPEN SPACES PROVIDING REGIONAL PARKS AND OPEN SPACES, DISTRICT PARKS, LOCAL PARKS, SMALL LOCAL PARKS AND OPEN SPACES, LINEAR OPEN SPACES AND GREEN CHAINS.

ST41 THE COUNCIL WILL SEEK TO REALISE THE POTENTIAL OF METROPOLITAN OPEN LAND AND OTHER OPEN SPACES TO PROVIDE FOR A WIDE RANGE OF APPROPRIATE AND ACCESSIBLE LEISURE FACILITIES FOR SPORTS, ARTS AND WATER BASED LEISURE ACTIVITIES.

ST42 THE COUNCIL WILL SEEK TO PROTECT AND ENHANCE THE NATURAL ENVIRONMENT OF THE BOROUGH AND WILL PROMOTE A GREATER AWARENESS OF NATURE CONSERVATION AND ECOLOGICAL ISSUES.

Community Services ST43 THE COUNCIL WILL SEEK TO FACILITATE THE PROVISION OF SOCIAL AND COMMUNITY SERVICES, IN ASSOCIATION WITH THE APPROPRIATE SERVICE PROVIDERS, THROUGH THE RETENTION OF SUITABLE SITES AND PREMISES AND THE PROVISION OF ALTERNATIVE AND ADDITIONAL SUITABLE SITES AND PREMISES WHERE APPROPRIATE.

Arts, Culture and Entertainment ST44 THE COUNCIL WILL SEEK TO RETAIN EXISTING ARTS, CULTURE AND ENTERTAINMENT FACILITES AND WILL ENCOURAGE THE PROVISION OF NEW FACILITES TO MEET LOCAL AND WIDER NEEDS.

ST45 THE COUNCIL WILL ENCOURAGE THE PROVISION OF TOURIST FACILITIES AND VISITOR ACCOMMODATION IN APPROPRIATE LOCATIONS.

ST40 THE COUNCIL WILL SEEK TO RETAIN EXISTING SPORTS GROUNDS, PLAYING FIELDS AND ALLOTMENTS AS OPEN SPACE.


19

Implementation and Financial Resources 42. The London Borough of Hackney will seek to implement this Plan through a combination of the following: (i) acting as the local planning authority, the Council will guide development and determine planning applications; (ii) by direct investment, as landowner and developer, often in partnership with the private sector; (iii) by assistance - with finance or acquisition - to private developers, whether individuals or companies, and to community groups; and (iv) by lobbying Central Government, private developers, and agencies which provide essential services (e.g. British Rail, London Regional Transport, and East London and City Health Authority [ELCHA]) to allocate resources, to make particular investments, or to make changes in service delivery which will benefit Hackney residents and workers. 43. Where appropriate the Council will enter into joint arrangements with the private sector and public and statutory bodies, to ensure that major infrastructural investments, particularly to the public transport system, are enabled to proceed. 44. The policies and expenditure programmes of the Council and other public authorities will have a major bearing on the pattern of development in the Borough over the next 5-10 years. The scope for investment will depend primarily on: (i) Government guidelines and controls on national and local spending; 20

(ii) existing capital commitments; (iii) Council income; (iv) Government initiatives such as the Single Regeneration Budget; and (v) financial assistance from the European Union.

Financial Resources Council Expenditure 45. For many years the Government has restricted the Council’s spending. Limitations on expenditure are enforced by a variety of means including: (i) Council tax capping which limits the Council’s ability to determine the level of spending to be financed from council tax income; (ii) controls over the amount the Council can borrow to fund capital spending; and (iii) permitting the Council to only use a proportion of receipts it generates from the disposal of Council owned assets. 46. Because of the uncertainty over future spending levels the UDP has been drawn up to reflect available resources. London Borough of Hackney Capital Programmes 47. The Council’s own capital programmes make provision for: • environmental upgrading of housing estates; • housing improvements and new developments; London Borough of Hackney Adopted UDP – June 1995

• refurbishment of buildings required to meet the Council’s own accommodation requirements; • maintenance and improvement of roads and facilites for pedestrians and cyclists; • social and community facilities; • refuse collection and cleansing services; and • primary and secondary schools and further education facilities. Scope for Private Investment 48. The Council welcomes and seeks to encourage more private investment in Hackney from developers, industrialists, retailers and other groups and individuals. 49. Many buildings are in need of modernisation or refurbishment if they are to have a useful future life. New building, particularly of well located o ffices, factories and shops is also necessary to provide the quality of floorspace required by firms and the good conditions demanded by employees and the public. New investment brings with it jobs, new and improved shopping facilities, new and improved housing and a better environment.

51. Financial resources have become available from the European Union through the declaration of a major part of the Borough as an Objective 2 area within the Lee Valley. The Council is working with other local authorities, with business and with other interests in the Lee Valley Partnership. The Council will seek additional funding from the EC for other, more local, projects. 52. The Council is also a participant in the Thames Gateway London Group established by local authorities following the work of Central Government to promote development of the East Thames Corridor (later “Thames Gateway”). Although Hackney has few major development sites to compare with the massive sites elsewhere in the Gateway area, the Borough hopes to benefit from new training and public transport infrastructure projects which the Partnership will promote. The “Development Control Charter for Hackney” descibes how the Council deals with planning applications and sets out the level of service that a customer can expect. It also provides information on planning enforcement and Council complaints procedures.

Implementation of the Plan Urban Regeneration Partnerships 50. The Council is anxious to secure effective partnerships with other agencies in order to secure the regeneration of Hackney. The Hackney 2000 Parnership is an umbrella organisation which seeks to capitalise on partnerships with agencies already active in Hackney and to access new and innovative funding opportunities. The Dalston City Challenge Partnership proposes renewal of the Dalston and A10 Corridor and includes the Holly Street CEI scheme. The Heart of Hackney project seeks the renewal of the Mare Street Corridor. London Borough of Hackney Adopted UDP – June 1995

Planning Powers 53. In general terms the Council’s planning powers are exercised through development control, which enables the Council to direct and guide change rather than promote it. The Council can grant or refuse planning permission for new development and impose conditions which prescribe the way in which permissions are to be implemented. This means that although the Council can control the design and layout of a building, it cannot ensure that it is built or occupied. The Council has some powers 21

to control change of use in a building but it can rarely stop businesses closing down. 54. Planning controls enable the Council to insist upon good standards of design and prevent developments which would have a detrimental impact upon the area. Planning conditions can prevent local problems such as unsociable hours of work and other nuisances, and enable the Council to consider the consequences of development and take action if conditions are breached. In some cases the Council is able to negotiate with developers to reach agreements that provide local community benefits as part of development proposals. Planning Applications 55. Most new building works and changes of use require planning permission. They will be considered by the Council in relation to the planning policies and proposals set out in this Plan. Applications which comply with the policies and proposals will normally be permitted but may be subject to conditions or possibly a legal agreement. Planning permission does not, however, exempt the applicant from seeking other authorisations or consents under other legislation, such as those relating to building and fire regulations or listed building requirements. 56. Planning applications may be submitted in outline or in full. The Council will normally require fully detailed applications to be submitted, for example, for works in conservation areas and where the proposals affect important buildings. Where permission is granted in outline terms, a subsequent submission of details will be required. The policies contained in this Plan will help ensure that the Council treats all planning applications in a consistent way. The “Development Control Charter for Hackney” describes how the Council deals with planning applications and sets 22

out the level of service that a customer can expect. It also provides information on planning enforcement and Council complaints procedures. 57. Advice on the form and content of applications is provided by the Council's Town Planning Service. Guidance can be obtained from the standards contained in this Plan and also from Supplementary Planning Guidance Notes (SPG) published by the Council. These explain how policies will be applied and what standards must be achieved. In some cases – where the site is particularly important or the development will be complex – the Council may produce a 'planning brief' detailing the type and form of development required. It is often helpful for an applicant to discuss a proposal with planning officers before submitting an application. 58. It is the Council’s practice to ensure that the views of people who may be affected by the proposal are taken into account. The Council notifies adjoining owners and neighbours in the area of the proposal, and may request the observations of local residents’ groups, associations and amenity societies. In some cases the Council may need to advertise the proposal by putting a notice on site or placing an advertisement in the local press. If necessary, the Council will call a public meeting, to which the applicant will be invited, to discuss the proposal. The leaflet “Planning Applications and Yo u ” explains the Council’s policy of consultation and notification of residents and businesses about planning proposals which affect their local area. Where appropriate, the Council will also consult adjoining authorities on planning applications. In respect of developments in the vicinity of notifiable installations the Health and Safety Executive will be consulted. Where appropriate the Council will consult with the National Rivers Authority, British Waterways, the London London Borough of Hackney Adopted UDP – June 1995

Waste Regulatory Authority, Thames Water and English Nature. Listed Buildings, Conservation Areas and Archaeology 59. The Council has a specific duty to protect listed buildings and buildings in conservation areas from demolition, disrepair and inappropriate uses. It is advisable for owners and occupiers of these buildings to contact the Council’s Town Planning Service to check the responsibilities which they have for their upkeep. Demolition of these buildings or alterations to interior or exterior features will almost certainly require listed building consent, even if a dangerous structure notice has been served by the District Surveyor. It will also be necessary to apply for conservation consent in the case of most conservation area demolition projects. 60. All planning and listed building consent applications for works to listed buildings, should be fully detailed and accompanied by an appropriate level of detail including exisitng and proposed plans, sections and elevations. Drawings should be annotated to show all works with areas of demolition/new build and features to be retained or altered marked clearly. A photographic survey will normally be required to assist in assessment of proposed works affecting the interior of a listed building. It is necessary to show the elevational treatment of the proposal and its impact upon the building concerned, adjacent buildings and their setting. Sample materials may also be required. 61. Specialist advice regarding listed buildings can be obtained from English Heritage; and from the Council’s conservation and design officer. Grant aid for the restoration of original features and similar work may also be available. 62. The Council also has a duty to make provision for the proper preservation and recording of archaeological remains London Borough of Hackney Adopted UDP – June 1995

found in the Borough, often upon redevelopment. Areas of archaeological interest are recorded on the proposals map and it is advisable for prospective developers to contact the Council’s Town Planning Service at an early stage in their considerations if their sites are located within such an area. If archaeological remains are found during development, developers should immediately contact the Council’s Town Planning Service. Tree Preservation Orders 63. Trees are an important townscape feature and some of Hackney’s trees are protected from felling or other damage by Tree Preservation Orders (TPO) made by the Council, which will continue to add to its list of TPO as circumstances require. TPO apply to trees which are of particular amenity value. Protected trees must not be topped, lopped or otherwise damaged or removed without consent from the Council. Usually, consent will only be given if a tree is diseased or dangerous; a replacement may be required. 64. All trees in conservation areas (even those without a TPO) are ‘protected’ in that any proposed work on them must be notified to the Council 6 weeks before commencement. Once notified the Council will normally arrange to inspect the tree or trees and give agreement or otherwise to the works. Specialist advice is available for trees which are affecting the amenity of an area or are a danger to the public. E n f o rcing Planning Policies and Decisions 65. Any works or changes of use which are undertaken without planning permission or listed building consent or other planning authorisation are liable to be the subject of enforcement action. This can take the form of an enforcement notice, stop notice, discontinuance order, or repairs notice and in some cases financial penalties may be incurred. The Council employs enforcement surveyors to check 23

unauthorised works and uses and to see that planning permissions and other consents are properly implemented. 66. Legislation such as the Environmental Protection Act, Health and Safety at Work Act, the Clean Air Acts, Public Health Acts and the Control of Pollution Act deal with smoke, noise, smells, vibration and other nuisances. Advice upon these matters can be obtained from the Council’s Environmental Protection Division and from the Health and Safety Inspectorate. Positive Action 67. There are positive powers available to the Council to undertake its own developments and to promote environmental improvements, economic regeneration and other projects.The Council has made extensive use of these powers, particularly to improve shopping centres such as Broadway Market, Hoxton Street, and Stoke Newington; and open spaces, such as Butterfield Green park and the St. Michael's Church, Mark Street park. 68. The Council has used its powers of land assembly and the making of loans and grants to actively promote development. Again, Broadway Market is a good example.

71. Apart from the Council, many other bodies are responsible for providing essential services to Hackney residents and workers. Cutbacks in investment can seriously affect employment opportunities and the meeting of local needs. The Council will, therefore, monitor services such as public transport and health provision and will campaign against cuts and for improvements. 72. Because areas of interest do not necessarily coincide with administrative boundaries, the Council will co-operate with adjoining boroughs over matters of mutual concern. 73. The Council can also help achieve the Plan’s objectives by acting as an example to others. The Council can provide a lead, for example, by employing people on an equal opportunity basis and by adapting its own buildings to allow safe and convenient access and use by people with disabilities, by implementing and promoting energy efficiency mesures and by promoting nature conservation in the management of its own land and encouraging other landowners to do the same. The Council’s Environmental Policy Declaration will assist the Council in promoting good practice in these areas.

69. The regeneration partnerships which the Council has entered with businesses and other agencies will bring forward many development and improvement schemes during the lifetime of the Plan, especially in the Dalston City Challenge Corridor and the Heart of Hackney area. The Council as a ‘Pressure Group’ 70. Because Central Government has so much influence over the finances of the Council, Hackney will continue to campaign for increased resources to meet the needs of local people.

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Part Two ●

PLANNING FOR BLACK AND ETHNIC MINORITIES

●

ENVIRONMENTAL QUALITY

●

HOUSING

●

EMPLOYMENT

●

SOUTH SHOREDITCH

●

TRANSPORT

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RETAILING AND TOWN CENTRES

●

OPEN SPACES AND NATURE CONSERVATION

●

COMMUNITY SERVICES

●

ARTS, CULTURE AND ENTERTAINMENT

●

PLANNING STANDARDS

●

SCHEDULE OF PROPOSALS

●

GLOSSARY


25

26


Chapter 1

Planning for Black and Ethnic Minorities in Hackney INTRODUCTION STRATEGIC POLICIES NATIONAL POLICY CONTEXT REGIONAL POLICY CONTEXT METROPOLITAN POLICY CONTEXT LOCAL POLICY CONTEXT Summary of Relevant Policies a

Environmental Quality

b

Housing

c

Employment

d

Transport

e

Shopping

f

Community Services

g

Leisure, Arts, Culture and Entertainment


27

Fi g. 1 Hackney’ s Bl ack & Et hni c Mi nor i t y Communi t i es

28


Justification 5.

The Council is committed to ensuring that the UDP should address the needs of individuals and groups in society that have in the past been overlooked and accorded little weight in the planning process. Often this will also encompass a locational aspect because of the grouping of particular communities such as the Orthodox Jews in Stamford Hill or of Black and Ethnic Minorities in particular wards.

6.

People with disabilities, including many elderly people, have special needs which, if they are not taken into account in developments, can perpetuate their disadvantaged position in society. Easy physical access to shops, community facilities and places of employment can help, as can the design of homes to ensure that a range of sheltered, mobility and wheelchair standard homes are available to meet society’s needs. The physical design of footways and street furniture is important, as is the provision of special car parking spaces. New public transport links should take better account of the needs of people with disabilities, particularly because of their lower rate of car ownership. The retention of local shops, jobs and services is essential to help compensate for lower levels of mobility.

7.

Many of these factors are also of relevance to carers of small children (most of whom are women) who often find their mobility reduced by the poor design of footways, and shop and other premises which do not cater properly for buggies and prams. The provision of nursery and creche facilities associated with major developments can be important in ensuring carers have better access to employment. The provision of adequate pubic conveniences and unisex baby changing facilities in major developments can improve the quality of life for carers and children.

Introduction 1.

In preparing the Unitary Development Plan, the Council has been conscious of the fact that people in the Black and Ethnic Minority (BEM) communities make up almost half of the population in the Borough (Fig 1). The Council recognises that the presence of so many, culturally diverse, communities has immeasurably enriched the Borough’s economic, social and cultural life.

2.

The Council is also conscious that its Black and Ethnic Minority residents suffer disproportionately high unemployment rates and unsatisfactory housing conditions as a result of discrimination and historical disadvantage and exclusion.

3.

Therefore, it was felt to be appropriate to include a special chapter in this Plan devoted to a review of BEM needs, problems and opportunities as could be influenced and addressed by land use planning policies.

4.

The Council seeks to address and alleviate these problems, with special reference to the needs of its Black and Ethnic Minority residents, in so far as its powers as a local planning authority permit, through this Plan’s Strategic Policies (Part 1) and in particular:

Strategic Policies ST17 THE COUNCIL WILL SEEK TO ENSURE THAT THE SPECIAL NEEDS OF PEOPLE WITH DISABILITIES, WOMEN, CHILDREN, BLACK AND ETHNIC MINORITIES, CULTURAL AND RELIGIOUS GROUPS, COMMUNITIES AND NEIGHBOURHOODS WHO SUFFER FROM DISCRIMINATION OR DISADVANTAGE ARE TAKEN INTO ACCOUNT IN THE IMPLEMENTATION OF THE POLICIES OF THIS PLAN.


29

8.

9.

The Black and Ethnic Minority population of Hackney will benefit directly from all of these improvements. In addition further special needs can be identified particularly in respect of housing, community facilities and places of religious worship. Many ethnic minority groups have household sizes larger than the Hackney average which reflects both the extended family system of living and the relatively young age structure of many communities. The Plan must ensure that there is an adequate range of dwelling sizes to meet the needs of all households within Hackney and seeks to provide affordable housing to ensure that access to suitable accommodation is not prevented on cost grounds alone. Members of ethnic minorities often require their own community facilities and places of religious worship. They may also require specialist shops, meeting places, cultural centres, schools and other facilities. The provision of such facilities will require new development and changes of use of existing premises.

10. It is well known that Hackney, for all its vibrant and rich melange of communities and activities, suffers from all the classic symptoms of inner city deprivation. In terms of its level of unemployment and other indicators, most of the Borough qualifies as an area of community need, not just in comparison to the rest of London but even on a National and European Union level.

ST27 THE COUNCIL WILL SEEK TO ACHIEVE AN ADEQUATE AND EQUITABLE DISTRIBUTION OF JOB OPPORTUNITIES, SERVICES, AND COMMUNITY FACILITIES THROUGHOUT THE BOROUGH, WHICH WILL REDUCE TRAVEL NEEDS AND BENEFIT THE LOCAL COMMUNITY AND ENVIRONMENT, BY PROTECTING AND ENHANCING THE BOROUGH’S MIXED LAND USE CHARACTER. THE COUNCIL WILL ALSO SEEK TO IMPROVE ACCESSIBILITY WITHIN AND WITHOUT THE BOROUGH BY PUBLIC TRANSPORT.

Justification 11. The Council is concerned to ensure that all Hackney residents have the same level of access to jobs, services and community facilities. Access is a major problem in a Borough with relatively low private car ownership and poor public transport. Women and people with disabilities are particularly disadvantaged on account of their, generally, low incomes and personal transport needs. Many of the Borough’s Black and Ethnic Minority residents are also disproportionately concentrated in areas with poor public transport communications. The Council recognises that gender, sexuality, age and disability related disadvantage are further magnified in the case of ethnic minority residents subject to historical discrimination and exclusion.. (Also see main justification to ST29 in Transport chapter).

National Policy Context 12. Unlike most other aspects of land use planning, Central Government has not considered it necessary to issue detailed guidance to the Council as to how it should provide for the particular land and premises needs of the Borough’s Black and Ethnic Minority communities. The Council is obliged to “consider the relationship of planning policies and 30


proposals to social needs and problems, including their likely impact on different groups in the population such as racial minorities” when preparing its local plan (Planning Policy Guidance Note 15). 13. In addition to the above advice, Section 55 of the Housing and Planning Act, 1986 makes it unlawful for a local planning authority to discriminate against a person in carrying out their planning functions. The Council also has a general statutory duty under Section 71 of the 1976 Race Relations Act to: “make appropriate arrangements with a view to securing that their various functions are carried out with due regard to the need to eliminate unlawful racial discrimination, and to promote equality of opportunity and good relations between persons of different racial groups”.

Regional Policy Context 14. SERPLAN has identified the South East Region as one of the most important areas of ethnic minority settlement in the country and furthermore, with particular reference to London, has argued that the high ethnic minority proportion of the capital’s population and corresponding multicultural diversity has given London an advantage over most other major European cities. 15. In its “Vision for the Region”, SERPLAN advocates making the most of the r e g i o n ’s multicultural strengths while demanding a more equitable share of the region’s resources for its disadvantaged ethnic minority residents. (“Shaping The South East: A New Planning Strategy”).


Metropolitan Policy Context 16. RPG3 Strategic Guidance for London (1989) is conspicuous for its absence of any reference to the particular land use requirements and planning needs of L o n d o n ’s Black and Ethnic Minority communities. LPAC, however, in its Strategic Advice specifically recognises the need to address disproportionately high ethnic minority unemployment rates and supports the provision of ethnic minority places of religious worship such as synagogues, mosques and temples. 17. LPAC’s “Fourfold Vision for London” includes an aspiration that London should become a ‘City of Opportunities for All’ with priority accorded to addressing the needs of the most disadvantaged residents and in particular targeted at those living in ‘Areas of Community Need and Community Regeneration’. 18. In the opinion of the Council most of the B o r o u g h ’s Black and Ethnic Minority communities live in areas of community need and community regeneration where local community needs and requirements should assist in shaping development strategies and proposals.

Local Policy Context 19. The degree and nature of disadvantage suffered by Black and Ethnic Minority communities in this country has been well documented by a stream of reports, including those by Scarman, the House of Commons Home Affairs Committee and the Policy Studies Institute. In the field of town planning, the issues of racial disadvantage and discrimination have been addressed by a joint working party of the Royal Town Planning Institute and the Commission for Racial Equality. The Working Party came up with a useful 31

range of proposals that were intended to sensitise central government, local authorities and town planners generally to the needs and aspirations of ethnic minority communities. 20. The solid body of evidence contained in all these reports concerning the various forms of racial disadvantage provides a useful backdrop to any policy statements or site-based proposals contained elsewhere in this Plan. However, because of continuing resource constraints, the Council itself has not, as yet, been able to mount a thorough review of Black and Ethnic Minority needs as could be addressed by land use planning measures.

(b) ensured that all policies were examined for possible discrimination, direct or indirect, against Black and Ethnic Minority communities. (c) researched the specific planning needs of the Turkish/Kurdish, Chinese and Orthodox Jewish communities.

Summary of Relevant Policies The following needs and relevant policies are identified in specific topic chapters: Environmental Quality

21. The Council has been able to draw on certain evidence and experience arising from consultations with representatives of Hackney’s ethnic communities and the A u t h o r i t y ’s role in regulating land use developments. Thus, the Council took the initiative in setting up a special working party with Hackney Ethnic Minorities Alliance and the Orthodox Jewish Community to review a number of policy areas during the preparation of the Hackney Local Plan. 22. This consultation process has been continued during the preparation of the Unitary Development Plan with regular progress reports to the Directorate of Environmental Services Black and Ethnic Minority Service Delivery Working Party ( c o m m u n i t y, officer and member representatives). 23. Thus, in the spirit of the Council’s equal opportunities policy and its overall commitment to try to eliminate particular manifestations of disadvantage among the Black and Ethnic Minority communities, the Council has: (a) built in policies and proposals to meet particular needs identified by Black and Ethnic Minority communities for land and buildings; and 32

(i)

Needs

24. The Environmental Quality policies of this Plan, together with the Council’s wider complementary Environmental Policy and Strategy, will make Hackney a safer, healthier and more attractive place for the Borough’s Black and Ethnic Minority communities to live and work in. 25. The Council recognises that Black and Ethnic Minority communities wish to manifest their cultural traditions and inheritance in all spheres of social, economic and cultural activity, including the built environment and urban design, and positively welcomes this multicultural contribution in making Hackney such a vibrant Borough to the mutual benefit of all residents. 26. The Council is aware of the issues that can arise in introducing multi-cultural architectural styles to areas of established townscape of a culturally specific character. The Council will seek to ensure that, wherever possible, opportunities are created for the expression of the multicultural character of the Borough in built form. Particular care will be necessary to meet this need where proposals aff e c t conservation areas and listed buildings. London Borough of Hackney Adopted UDP – June 1995

27. The Council will seek good design solutions which both preserve or enhance historic buildings and areas and facilitate the expression of the social, economic and cultural traditions of ethnic minority communities in the Borough. Such expression can be found in buildings such as the Medina Mosque and the Islamic Cultural Centre. (ii)

Policies to meet these needs

28. The justifications for Policies EQ1 and EQ6 attempt to take proper account of Black and Ethnic Minority needs in terms of urban design and cultural requirements. The former justification seeks to balance the need to consider the proposed design and architecture of a development within the context of the existing townscape while ensuring that, where possible, the development reflects the multi cultural diversity of that area. The latter justification recognises the need to consider particular cultural requirements for extended, or differently ordered, living space when considering planning applications for alterations and extensions to existing buildings and proposed developments. Housing (i)

Needs

29. The particular housing needs of the Black and Ethnic communities can be itemised as relating to: (i) a shortage of dwellings suitable for large and extended families. There needs to be a better match between housing requirements and housing stock. In order to achieve this, it is essential to retain a sufficient stock of houses suitable for continued single family occupation, and ensure new developments provide an appropriate mix of dwelling sizes. These would include a proportion of houses of three, four or more London Borough of Hackney Adopted UDP – June 1995

bedrooms with sufficient living space to accommodate large families. (ii) bad housing conditions. People in the Black and Ethnic Minority communities generally experience the worst housing conditions. As the Council has been increasingly precluded from providing new homes itself, it is actively encouraging local housing associations, including those particularly catering for ethnic minority needs, by making available sites and premises to provide new dwellings, which will be mostly occupied by nominees from the Council’s homelessness and waiting lists, on which Black and Ethnic Minority communities are disproportionately overrepresented. The Council also encourages, and the Plan normally requires in the case of larger sites, private housing developers to include af f o r d a b l e housing elements in their schemes. This will be of particular benefit to lower income households among whom the Black and Ethnic Minority communities are disproportionately represented. (iii) a suitable range of community facilities within easy reach of home. This is particularly important for Black and Ethnic Minority communities, which might often wish for cultural, educational or religious facilities to be within reasonable walking distance from home. (iv) living space within homes adapted to cultural requirements. (v) access to the private rented sector of housing. Because of rising rent levels, young, low-paid men and women find it difficult, if not impossible, to find suitable accommodation of this kind. Consequently, there is a high level of 33

homelessness among this section of the Black and Ethnic Minority communities. (ii)


30. Policies HO9 and HO12 address the problem of a shortage of large houses in the Borough. In the case of HO9 the policy specifically indicates a mix of size of dwelling that normally requires a minimum proportion of 3 bedroom and 4 bedroom units in practically all new housing schemes. 31. Policy HO12 specifies a minimum threshold of 120 sq. metres for housing conversions. This threshold will enable the retention of substantial houses for l a rge households with children, which will particularly benefit Orthodox Jewish and Black and Ethnic Minority communities. Even houses above this threshold may not receive permission for conversion if they fall into Housing Renewal Areas or other areas for priority action where this conflicts with meeting local housing needs. These provisions of the policy should stem the past substantial loss of large family accommodation through high rates of conversion. As a further safeguard, the policy stipulates that all conversions, if permitted, should include at least one 3 bedroom unit, and that in the cases of conversions substantially above the 120 sq. metres threshold, provision should be made for units larger than just three bedrooms. 32. Policy HO10 seeks to deal with the bad housing conditions disproportionately experienced by Hackney’s Black and Ethnic Minority communities insofar as this core problem can be influenced purely by the implementation of land use policy. Thus, the policy requires that all new housing schemes over 0.4 hectares (1 acre) should, wherever practicable, make provision for people on the Council’s waiting or transfer lists via such means as 34

rental and shared ownership schemes. This is particularly important in a Borough under-resourced with land for new homes. 33. Policy HO8 relates to the needs of Black and Ethnic Minority communities for cultural, religious and educational facilities to be in close proximity to homes. The policy includes a provision whereby buildings in housing use can be converted to an essential community use if this is the only way to provide the community facility in question. 34. The Council has also published Supplementary Planning Guidance to ensure that housing schemes provide satisfactory internal layouts, space standards and amenity provision. However in interpreting this Guidance, the Council will pay close attention to the domestic needs of Black and Ethnic families in all such new build or conversion schemes. In particular, the Council will seek to ensure that proposed internal layouts do not exclude use by Black and Ethnic Minority families by virtue of inflexible or insensitive designs. 35. Policies HO14 and HO15 are concerned with housing in multiple occupation and hostels and thereby directly link into the issue of access to the private rented sector by young Black and Ethnic Minority men and women on low incomes. The whole thrust of the policies is to permit housing in multiple occupation and hostels provided certain conditions are met. The Council sees this type of housing provision as widening the range of accommodation to Black and Ethnic Minority local residents excluded from other sectors of the private rent market because of high rental levels. However, the policies are phrased so as to reinforce the intentions of Policy HO12 by not permitting multiple occupation in houses with a floorspace of less than 120 sq. metres. London Borough of Hackney Adopted UDP – June 1995

36. Policy HO18 provides for the establishment of Travellers sites to accommodate Travellers residing in or resorting to the Borough. Travellers are a particularly oppressed and vulnerable ethnic minority who have traditionally experienced severe problems and harassment in obtaining suitable stopping sites, with adequate facilities, to enable them to live in accordance with their cultural heritage and traditions. Employment (i)

Needs

37. Job losses in the Borough have particularly affected Black and Ethnic Minority communities. With young Black and Ethnic Minority men and women less likely to obtain employment than their non-ethnic minority counterparts, it is not surprising to learn that unemployment rates for minority groups are almost twice that for other groups. 38. Despite the overall decline in manufacturing employment, many new firms have emerged in Hackney. In particular, there has been a rapid growth of Black and Ethnic Minority businesses and co-operatives, which have requested financial and other practical forms of assistance to assist their successful development. (ii)


39. The Plan’s employment policies can only have a limited bearing on the twin challenges of cutting Black and Ethnic Minority unemployment rates and fostering the growth of ethnic minority businesses. Much of the Council’s efforts in this sphere are directed to making the fullest use of its powers under the Inner Urban Areas Act 1978. Under these provisions, Black and Ethnic Minority businesses have a high priority for financial assistance as well as being o ffered business advice and property funding services by the Council. London Borough of Hackney Adopted UDP – June 1995

40. Policy E11, which deals with car repair businesses, is particularly a reflection of the Council’s aim to preserve sources of employment important to workers from the Black and Ethnic Minority communities. It wishes to see this type of business enterprise flourish, provided that there is no unacceptable environmental impact. 41. Policy E16 reflects the Council’s wish to develop the skills of Borough residents and, in particular, Ethnic Minorities facing disadvantage in the labour market, by encouraging the provision of training facilities. Transport (i)

Needs

42. Car ownership levels in the Borough are l o w, and most residents rely on buses. People in the Black and Ethnic Minority communities are less likely to have access to a car, but, at the same time, have difficulty in finding safe and efficient transport to meet their various needs. This, in turn, means that Black and Ethnic Minority residents are at a greater disadvantage in finding jobs and social and other facilities in other parts of London. Furthermore, Black and Ethnic Minority residents suffer from racial harassment and attacks when travelling by foot along streets in Hackney. (ii)


43. Policies TR4 and TR5 are the most relevant in this context in seeking, firstly, to safeguard land, as shown on the Proposals Map, for public transport purposes, and secondly, to improve public transport facilities and access to them as opportunities arise from new development or redevelopment near public transport stops or termini. Policy R11 should also be mentioned here, in that mini-cabs make an important contribution to public transport services 35

for Black and Ethnic Minority people, especially at night, and thus relieve these communities of some of the fear of racial attack. Shopping (i)

Needs

44. The main needs of Black and Ethnic Minority communities in relation to shopping are: (a) to maintain the role of the retailing sector as an important employer of local people, especially ethnic minority residents. Furthermore, retailing and other service uses provide important entrepreneurial opportunities. The Council’s concern to foster such businesses has already been affirmed in the ‘Employment Policies’ section above. (b) to offer a wider and more accessible range of shops suited to the particular requirements of different ethnic communities in Hackney. There are gaps in the market for specialist food, clothing and record music shops as well as for financial advice, banking and travel services. (c) to involve Black and Ethnic Minority women in particular in the improvement and design of shopping facilities, as they have substantial domestic and family responsibilities. (d) to realise the scope for the integration of Black and Ethnic Minority community facilities in the larg e r shopping centres. (ii)


45. Policies R8, R9, R10, R11, R15 and R16 collectively reflect the importance attached by the Council to the retailing and service sector as a source of jobs and an area for business growth for the Black 36

and Ethnic Minority communities in H a c k n e y. Policy R8 relates to the protection of local shops vital to the everyday life of ethnic minorities such as specialist ethnic food shops, which are an obvious source of business enterprise. 46. Policy R9 recognises that redundant shop premises outside main and local shopping centres may well be an ideal location for an ethnic minority business enterprise. Within the same line of reasoning, Policy R10 recognises that ‘take-away’ hot food shops and restaurants provide significant outlets for ethnic minority business initiatives, while equally recognising that the potential problems of noise, smell and t r a ffic generation must be properly addressed in the interests of all residents. 47. Policy R11 refers to mini-cab and driving school offices as a further source of ethnic minority business opportunity, and recognises the important role of mini-cabs as a further ‘arm’ of the local public transport service. However, the policy again addresses itself to the environmental problems of on-street parking, noise and interruption to traffic flows that can be created. 48. Policy R15 reflects the Council’s flexible view that the use of upper floors above shops for small businesses may well be a suitable alternative use to residential use in certain circumstances or in certain types of location. Policies R16 and R17 emphasise the role of street markets as a launching pad for minority entrepreneurs, and pledges to safeguard, improve and extend the network of street markets in Hackney. 49. Policies R4 and R8 relate to the issue of providing a wide and highly accessible range of shops suited to the cultural needs of the ethnic minority communities in the Borough. Thus, Policy R4 seeks to ensure that local shopping facilities are adequate by seeking, where necessary, new shop units in the larger new housing schemes. London Borough of Hackney Adopted UDP – June 1995

The provisions of Policy R8 have already been outlined in paragraph 33 above.

Community Services (i)

50. Policies R2 and R18 both repeat the same theme: namely, that all new retail developments and all extensions or alterations to existing shops should make proper provision for carers with young children. In the case of supermarkets (Policy R2), this would include creche facilities, public toilets and changing and feeding areas. Policy R18 looks generally at planning standards for all types of retail development. 51. Policies R2, R7, R9, R10 and R15 in their different ways reiterate the need to seize any suitable opportunities to introduce further ethnic minority facilities within shopping centres. Policy R1 refers generally to such opportunities in the Borough’s main shopping centres, but the policy justification also highlights the location of ethnic minority educational, cultural and entertainment facilities in these centres. 52. Policy R7 covers changes of use at ground floor level in main and local shopping centres, its justification states that appropriate uses would include Black and Ethnic Minority community facilities. Policy R9 points up the opportunities to provide the same kind of facilities in redundant shop premises outside main and local shopping centres. In this context, Policy R10 reflects the role of ethnic minority-run restaurants as significant cultural and recreational meeting-places for people in the Black and Ethnic Minority communities. 53. Policy R15 also refers to the use of upper floors above shops for ethnic minority community purposes, citing, in particular, the need to accommodate community advice and support organisations in such premises, provided that the former residential use is no longer viable. London Borough of Hackney Adopted UDP – June 1995

Needs

54. There are relatively few vacant sites coming onto the market for any purpose in Hackney, reflecting its highly built-up nature. As an inevitable result, there is a growing demand to use houses and flats for the provision of community services such as synagogues, schools and advice centres that are vital elements of the everyday lives of Black and Ethnic Minority communities in Hackney. For example, the increase in demand for Orthodox Jewish school places in the next ten years is likely to be at least 50%. Furthermore, this same community finds it difficult to obtain premises for religious services in the face of great development pressure on vacant sites and properties in the northern part of the Borough. (ii)


55. Policies CS1, CS2, CS3, CS5, CS6, CS7, CS8 and CS10 collectively attempt to address this problem of a scarcity of suitable sites and premises for particularly ethnic minority use. Thus, Policy CS1 deals with safeguarding sites and buildings, as shown on the Proposals Map, for a range of community facilities. Policy CS2 is concerned with the provision of community facilities as part of the larger kind of development schemes for housing, retailing, off i c e s and other major uses. This will often benefit Black and Ethnic Minority communities in Hackney. 56. Policy CS3 lays emphasis on the retention of community facilities, and of keeping community buildings and sites in some form of community use. It refers to the twin objectives of protecting existing community services and accommodating newly arising community needs. This policy again will often benefit ethnic minority communities in the Borough. 37

57. Policy CS5 recognises that most ‘traditional’ and ‘alternative’ healthcare practitioners serving specific ethnic minority needs are compelled to operate from residential premises. The Council will favourably consider such uses provided it will not cause unacceptable detriment to residential amenities. 58. Policy CS6 acknowledges the important role of the independent, religious-based, schools in meeting the specific educational requirements of some Black and Ethnic Minority communities. 59. Policy CS7 reflects the Council’s wish to encourage community groups to secure suitable sites and premises to meet their various cultural, religious and welfare needs. This policy very specifically relates to the requirements of the Black and Ethnic Minority communities for facilities in the Borough’s main shopping centres and most northerly wards. It notes the pressure for sites for community facilities and promises sympathetic consideration to proposals for adapting residential and similar properties for this type of purpose. 60. Policy CS8 further affirms the Council’s recognition of the important role of religious worship in the life of many Borough residents and the need to provide suitable sites and premises to meet a wide range of religious worship requirements, and especially the more recently established congregations without their own satisfactory places of worship. 61. L a s t l y, Policy CS10 regards the distribution and composition of Black and Ethnic Minority communities in Hackney as an important criteria for determining proposals for the delivery and location of community services. 38

Leisure, Arts, Culture and Entertainment (i)

Needs

62. The Council recognises that leisure, arts, cultural and entertainment facilities for the Black and Ethnic Minority communities in Hackney are generally inadequate, for example, in the field of non-commercially provided activities such as sports where Black and Ethnic Minority clubs cannot find suitable sites and premises. 63. H o w e v e r, as a document concerned principally with land use issues, the Plan has a limited role as a mechanism for helping to eliminate this inadequacy. 64. The Council’s main line of endeavour in this respect must lie through its Directorate of Education and Leisure Services, which is concerned with management policy and financing for such facilities. Thus, this Directorate would be responsible, for example, for promoting ethnic minority arts or o rganising women-only sessions at Borough swimming pools. 65. The Council also recognises that commercially-provided leisure, arts, and cultural entertainment facilities targeted at the specific needs of Black and Ethnic Minority communities can provide important entrepreneurial and employment opportunities for ethnic minority residents and workers. (ii)


66. Policies concerning the provision of leisure, arts, cultural and entertainment facilities are to be found in both the Open Space and Arts, Culture and Entertainment Chapters. 67. Policy ACE1 is most relevant in relation to the needs of Black and Ethnic Minority communities in affirming that the Council will consider local community needs in London Borough of Hackney Adopted UDP – June 1995

determining all new proposals for new arts, culture and entertainment facilities. This policy is further reinforced by the justifications for Policies OS17 and ACE8 which emphasise the importance of designing all new leisure, arts, cultural and entertainment facilities so that they are suitable for multicultural use. 68. Policy R1 reflects the Council’s wish that development proposals for the Dalston, Mare Street and Stoke Newington Centres should provide for the cultural and entertainment needs of the Borough’s Black and Ethnic Minority communities. Policy EQ4 also reflects the Council’s wish to include open and public space within large developments suitable for cultural use by ethnic performers and exhibitors.


39

40


Chapter 2

Environmental Quality INTRODUCTION STRATEGIC POLICIES NATIONAL POLICY CONTEXT REGIONAL POLICY CONTEXT METROPOLITAN POLICY CONTEXT

Historic Buildings and Structures EQ16 EQ17 EQ18 EQ19 EQ20

Protection of Listed Buildings Alterations to Listed Buildings Setting of Listed Buildings Changes of Use of Listed Buildings Buildings of Local Significance

Metropolitan Land EQ21 Metropolitan Open Land Lee Valley Regional Park

LOCAL POLICY CONTEXT Development and Design EQ1 EQ2 EQ3 EQ4 EQ5 EQ6 EQ7 EQ8 EQ9

Development Requirements Protection of Strategic Views Tall Buildings New Urban Areas Infill Development Alterations and Extensions External Works and Landscape Percent for Conservation Development and the River Lee Navigation Floodplain EQ10 Vacant Land

EQ22 Proposals by Lee Valley Regional Park Authority EQ23 Development affecting the Park Canals and River Lee Navigation EQ24 EQ25 EQ26 EQ27

Canalside Development Proposals Water-related Uses Canals and Nature Conservation Residential Moorings

Other Special Areas EQ28 London Squares EQ29 Archeological Heritage EQ30 Areas of Special Landscape Character Trees

Conservation Areas EQ11 EQ12 EQ13 EQ14

Conservation Area Guidance Protection of Conservation Areas Demolition in Conservation Areas Alterations and Extensions of Buildings in Conservation Areas EQ15 Designation of New Conservation Areas


EQ31 Trees Shop Fronts, Signs and Advertisements EQ32 EQ33 EQ34 EQ35 EQ36

Shopfronts and Shop Signs External Advertisements Projecting Advertisements Illuminated Advertisements Advertisements in relation to Conservation Areas and Listed Buildings EQ37 Advertisement Hoardings 41

Satellite Antennae and Telecommunications Equipment EQ38 Satellite Antennae and Telecommunications Equipment Street Furniture EQ39 Street Furniture Pollution Control EQ40 Noise Control EQ41 Development close to existing sources of noise EQ42 Air Pollution EQ43 Development of Contaminated Land EQ44 Water Pollution Waste Management and Recycling EQ45 Waste Disposal EQ46 Recycling Facilities Renewable Energy EQ47 Renewable Energy Designing Out Crime EQ48 Designing Out Crime

42


6.

The UDP is part of this overall Strategy and this chapter is concerned with the physical and land use aspects of environmental quality.

7.

Improving the environment will help to make Hackney a more attractive place to live and work. It will have longer-term economic benefits if businesses are encouraged to start up, expand or relocate to Hackney.

8.

In addition to policies intended to control and guide development and protect environmentally sensitive areas, policies also address the important issues of noise, air pollution and contaminated land.

Introduction 1.

2.

3.

4.

5.

Concern for the quality of the environment lies at the heart of the Council’s planning policies. This is reflected throughout the UDP but most particularly in the Environmental Quality Chapter. All developments will need to be assessed against the policies in this chapter of the Plan. The Council is committed to maintaining and improving the environment and quality of life within Hackney for everyone through the sustainable and wise use of scarce and non-renewable natural resources, and is committed to actively protecting the rights of all residents to a clean, safe and attractive environment. The Council’s wider strategy for improving the environment is set out in its ‘Environmental Policy’. This recognises the threat to the environment posed by the activities of individuals, org a n i s a t i o n s and government. To achieve the aims of the Environmental Policy the Council will: • consult and work with local community and environmental groups, businesses, local education and training establishments, Government agencies and staff; and • Establish management structures to ensure that the Council’s actions take account of their environmental implications; and • Ensure that all external organisations supported by the Council comply with the Council’s Environmental Policy. To further the above aims the Council has developed and is implementing a comprehensive “Action for the Environment Programme”. The programme identifies strategic areas for action and short and long term targets to achieve clear priorities.


Strategic Policies ST1 THE COUNCIL WILL WELCOME NEW DEVELOPMENT WHERE IT IS MOST APPROPRIATE AND OF MOST BENEFIT TO LOCAL NEEDS AND/OR TO THE WIDER NEEDS OF LONDON, PROVIDED THAT IT DOES NOT HAVE AN UNACCEPTABLE DETRIMENTAL IMPACT ON LOCAL AMENITY OR THE ENVIRONMENT.

Justification 9.

The Council as local planning authority, has been given the responsibility by Government of regulating the development and use of land in the public interest. In doing this it needs to take account of planning law and Government p o l i c y, the rights of landowners, developers and those directly affected by development, and the wider interests of those living and working in Hackney. It will sometimes also be necessary for it to consider the wider interests of London and the broad national interest where a development would serve or benefit a wider area than Hackney. New development is essential if east London is to be regenerated as part of an overall policy 43

objective for London of restraining growth in the west and fostering it in the east.

ST2 THE COUNCIL WILL SEEK TO ENSURE THAT ALL NEW DEVELOPMENT WILL BE IN KEEPING WITH,

10. Change in Hackney will come about through new development which the Council regulates through its development control service. In carrying out this service the Council will seek to balance all the relevant material considerations before reaching its decision on a planning application. Clearly some developments bring more benefits than others and some can be beneficial only in certain locations and not in others. The Council will, through this Plan, seek to steer development to where it will be most appropriate in terms of its impact on its surroundings and its need for accessibility, and where appropriate assess the environmental impact of transport schemes. For example, industry will not be encouraged in residential areas nor housed in industrial areas, and offices will not be allowed to squeeze out all other land uses in the Shoreditch area and will be encouraged to concentrate where there are good public transport links. As required by European Community directives and national regulations Environmental Impact Assessments will be required where development is likely to have a significant environmental impact. 11. Notwithstanding the benefits of any development, it will not be permitted where it would have an unacceptably detrimental impact on local amenity whether through its environmental impact, appearance, bulk, noise generation, traffic generation, or other e ffect. The Council will negotiate to reduce the detrimental impact of all development and will sometimes be able to suggest other more suitable sites for particular types of development. 44

OR ENHANCE, THE LOCAL CHARACTER OF ESTABLISHED AREAS OF TOWNSCAPE.

Justification 12. Many of the residential areas of Hackney have a distinctive local character which could easily be eroded or diluted by unsympathetic, inappropriate developments which do not address the local context. 13. Although the majority of these areas are not located in conservation areas, they nevertheless have attractive and distinctive aspects. The Council is concerned to ensure that new development is in keeping with or enhances the local character of these streets. 14. The Borough contains streets which date from different periods and which were developed in different ways, for example medieval village streets and Vi c t o r i a n terraces. This is still reflected in the surviving street form, and therefore houses and streets are varied in character. The local character of an area can be assessed by reference to such criteria as design characteristics, density of development, streetscape, plot form, roofscape, urban grain, materials, historic c h a r a c t e r, boundaries, landscaping ad street furniture. In some streets and areas these elements are very consistent presenting a coherent character whilst others present a more varied appearance due to the pattern of development over different periods, changing architectural styles and social change. New development need not slavishly conform to what exists, however, it should respect the character of the local townscape as established by reference to the above criteria. London Borough of Hackney Adopted UDP – June 1995

obligation, can only be assessed on an individual basis. The extent of any planning benefit must however, always be related to the scale of the proposal.

ST3 THE COUNCIL WILL, WHERE APPROPRIATE, SEEK PLANNING OBLIGATIONS TO SECURE RELEVANT PLANNING BENEFITS FROM NEW DEVELOPMENTS. PLANNING OBLIGATIONS WILL BE JUDGED APPROPRIATE WHERE THEY ARE NECESSARY TO THE GRANTING OF PERMISSION; RELEVANT TO PLANNING AND TO THE DEVELOPMENT TO BE PERMITTED; WHERE THE NEED FOR THE BENEFITS ARISES DIRECTLY FROM THE DEVELOPMENT CONCERNED; AND WHERE THE

18. L PA C ’s Strategic Planning Advice contains a “Table of Planning Advantages” and this is reproduced below to illustrate various types of planning benefit which the Council might consider appropriate, where directly related to the development in question.

BENEFITS SOUGHT ARE REASONABLY RELATED IN

Table of Planning Advantages

SCALE AND KIND TO THE PROPOSED DEVELOPMENT.

1.

Improvement of the public transport system at railway termini and interchanges when the development will generate journeys to work using these facilities.

2.

Provision of special benefits in the form of buildings, open spaces, pedestrian access and other facilities for the use of the public related to the development itself or the pedestrian movements which are generated and attracted.

3.

Conservation of buildings or places of historic or architectural interest and areas of nature conservation significance.

4.

Provision of low cost residential accommodation and community facilities to meet local needs where the development leads to an opportunity loss n terms of their provision or where necessary to sustain a ‘mixed use environment’.

5.

The provision of childcare and other indoor community facilities related to the development.

6.

‘Commuted payments’ to meet the full cost of the activity arising from the development and its implications for transportation and infrastructure including the need for parking and highway access.

Justification 15. Benefits secured by planning obligations can help ensure the best use of land and a properly planned environment. They can enable the private sector to contribute towards necessary investment in infrastructure such as improved public transport links, and the provision of community facilities and services. They can also be used to ameliorate the environmental and other adverse effects of major development in existing built up areas. 16. Clearly all new developments bring some benefits to the community but they may have harmful effects. In many cases the balance of benefit and harm is not clear cut and depends upon whether the benefits of allowing the development to proceed would outweigh any harm to interests of acknowledged importance. In these cases planning obligations can be beneficial to both the local community and the developer. The role of planning obligations in the development process is long established and is endorsed by Government policy. 17. This policy applies to all types of development and is not limited by the scale of the proposal. Whether or not it is appropriate to seek a planning obligation, and the scale and nature of any such London Borough of Hackney Adopted UDP – June 1995

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7.

Employment training and/or apprenticeship provisions to meet the requirements of model agreements developed by LPAC member authorities (this has been promoted by a majority of member authorities).

8.

Support to the upgrading of poorer quality accommodation for employment related activity for which otherwise there would be no effective demand.

9.

Others related to the development to meet particular local requirements.

ST4 THE COUNCIL WILL SEEK TO ENSURE A HIGH

Guidance: Development Plans and Regional Plans, and Regional Planning Guidance 1992) advises that Development Plan policies and proposals should aim to protect, enhance, and improve the environment. Additionally the adoption of Local Agenda 21, following the Earth Summit in Rio in 1992, has made Sustainable Development an especially important issue for local government. The Council recognises that immediate comprehensive action is needed to minimise further destruction to the environment, and has embarked on an “Action for the Environment” programme to help achieve this. ST6

STANDARD OF DESIGN THROUGHOUT HACKNEY IN RESPECT OF ALL DEVELOPMENT INCLUDING

THE COUNCIL WILL SEEK TO ENSURE THAT THE

ALTERATIONS AND ADDITIONS TO EXISTING

BUILT ENVIRONMENT IS FULLY ACCESSIBLE TO

BUILDINGS.

ALL, INCLUDING PEOPLE WITH MOBILITY DIFFICULTIES AND WHEELCHAIR USERS.

Justification 19. The Council considers that a high quality built environment can contribute significantly towards the quality of life of its residents, and the people who work in the Borough, as well as encourage muchneeded inward investment. ST5 THE COUNCIL WILL SEEK TO ENSURE THAT ALL DEVELOPMENT CONTRIBUTES TO THE PROMOTION OF AN ENVIRONMENTALLY SUSTAINABLE PATTERN AND FORM OF DEVELOPMENT, AND AS FAR AS POSSIBLE, WILL CONSIDER THE LOCAL, NATIONAL,

Justification 21. The Council acknowledges that a fully accessible built environment can make a significant contribution to the quality of life of residents, visitors and all those shopping or working in, or passing through the Borough. The needs of people with accessibility difficulties must be properly addressed today if structures now being built or refurbished are to be accessible in the future by an ageing population. The Council will take access issues into account when determining planning applications and in the implementation of its capital programme.

INTERNATIONAL AND GLOBAL ENVIRONMENTAL IMPLICATIONS OF DEVELOPMENT.

Justification 20. The Government White Paper “This Common Inheritance” (Cm. 1200, 1990) and the document “Sustainable Development: The UK Strategy” (Cm 2426, 1994) provide the basis for integrating environmental protection and enhancement, and land use policies. In addition PPG12 (Planning Policy 46

ST7 THE COUNCIL WILL PROTECT IMPORTANT VIEWS ACROSS AND WITHIN HACKNEY AND WILL RESIST EXCESSIVELY TALL BUILDINGS.

Justification 22. The Council is obliged under Strategic Guidance from the Government to protect strategic view backdrops, and wishes to ensure that the local environment is not London Borough of Hackney Adopted UDP – June 1995

over dominated by badly sited and unsympathetically scaled office buildings. Residential tower blocks have proved generally unpopular with their residents and have also spoiled the views of others living in the locality.

26. Protection of the natural environment and promotion of new wildlife habitats is similarly vital at both the London-wide and Borough-wide scale. ST11 THE COUNCIL WILL CONTROL ADVERTISEMENTS

ST8

TO PROTECT AND ENHANCE THE VISUAL AMENITY OF THE BOROUGH.

THE COUNCIL WILL PRESERVE AND ENHANCE ITS LISTED BUILDINGS AND THE CHARACTER AND APPEARANCE OF CONSERVATION AREAS AND WILL HAVE REGARD TO THE BOROUGH’S ARCHEOLOGICAL HERITAGE.

Justification 23. The Council now recognise the great value to the Borough’s ethnically diverse population, of the wealth of historic architectural and cultural interest in the shared physical environment, which forms the basis of the character of today’s H a c k n e y. The unique and cherished physical character can be used to promote positive images of the Borough, and help to counter the negative images of some of its post-war housing estate environments.

Justification 27. The Council recognises that outdoor advertising is essential to commercial activity and can communicate information and enliven the environment of town centres. The Council is concerned, however, that insensitive advertising can be detrimental to the visual amenity of the Borough. The Council will resist such proposals and will take action to remove inappropriate advertising such as unauthorised hoardings. The Council will also seek to ensure that advertisements do not adversely affect public safety. ST12 THE COUNCIL WILL PROTECT AND ENHANCE THE

ST9 THE COUNCIL WILL PROTECT METROPOLITAN OPEN LAND.

ST10 THE COUNCIL WILL HAVE REGARD TO THE PROVISIONS OF THE LEE VALLEY REGIONAL PARK PLAN.

Justification 24. Protection and enhancement of major open spaces is important to London as a whole and to the local, Hackney environment.

SPECIAL VALUE OF CANALS AND THE RIVER LEE NAVIGATION.

Justification 28. The Council recognises the important strategic contribution that the canals and the River Lee Navigation make to London both in general environmental terms, and their potential contribution for passenger and freight transport, recreation and tourism, and their contribution to ecology and nature conservation. The Council endorses LPA C ’s guidance regarding canal matters and will work with the London Canals Committee to achieve these aims.

25. The value of the Lee Valley is recognised in statute and the Council is required to reflect Park Authority proposals in its own statutory plan. London Borough of Hackney Adopted UDP – June 1995

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ST13

ST15

THE COUNCIL WILL PROTECT AND ENHANCE

THE COUNCIL WILL SEEK TO ENSURE THAT THE

SITES AND AREAS OF IMPORTANCE TO NATURE

BENEFITS OF NEW TELECOMMUNICATIONS

CONSERVATION.

EQUIPMENT ARE ACHIEVED IN A MANNER WHICH MINIMISES POTENTIALLY ADVERSE

Justification 29. It is important to retain natural habitats and features and to protect sites from development which are of nature conservation importance. Sites which are within easy reach of residential areas can provide opportunities for people to have ready contact with the natural environment. 30. The Part II policies of the UDP provide for a spectrum of protection ranging from Local Nature Reserves to Areas of Nature Conservation Importance ST14 THE COUNCIL WILL PROTECT TREES FOR THEIR AMENITY VALUE AND WILL ENCOURAGE NEW

ENVIRONMENTAL IMPACTS

Justification 32. The demand for satellite dishes, radio antennae and other telecommunications apparatus has been increasing and is expected to continue, due to greater commercial and domestic demand for new technology and central G o v e r n m e n t ’s commitment to promote this field. The Council recognises the benefits of encouraging new forms of telecommunications systems but will seek to ensure that any adverse impact on the landscape and townscape of the Borough arising from their development is minimised. ST16

PLANTING. THE COUNCIL WILL SEEK TO ENSURE THAT

Justification 31. Trees make a very substantial contribution to the green environment in inner city areas where there is insuff icient space for wider environmental improvement. Trees provide visual amenity and can help reduce noise and air pollution. Well sited trees can help to reduce wind turbulence and flows and provide ‘stepping stone’ habitats for wildlife. Where open spaces cannot be physically joined, tree planting can help to form visual green chains. Well chosen, carefully sited and properly maintained trees can provide an enhanced setting for many of the finest buildings and Conservation areas in the Borough.

48

DEVELOPMENTS DO NOT RESULT IN PROBLEMS OF POLLUTION, OR ARE A RISK TO THE HEALTH AND SAFETY OF THE PUBLIC.

Justification 33. A civilised city offering a high quality environment to all Londoners cannot arise without the use of planning controls to regulate the location of developments which generate noise, dust, fumes, gases, odours and other forms of pollution. 34. With existing pollution generating or potentially hazardous uses, the Council will seek to reduce pollution generation and control the types of development which can locate in the same area. Where land has been contaminated by its previous use the Council will seek to ensure this is identified and taken into account as a material consideration in the development process. Remedial works and special design features may be necessary before development can proceed on contaminated sites. London Borough of Hackney Adopted UDP – June 1995

ST17 THE COUNCIL WILL PROMOTE THE RECYCLING AND RE-USE OF DOMESTIC AND COMMERCIAL

s i m i l a r l y. It will also seek additional resources from the Government to ensure the effective implementation of this policy and the Recycling Plan.

WASTE BY MEANS OF RECYCLING AND WASTE STORAGE/COLLECTION FACILITIES.

Justification 35. The Environmental Protection Act 1990 requires that all local authorities develop strategies which will reduce the amount of household waste requiring disposal in landfill sites by 25% by the year 2000. These Recycling Plans should demonstrate appropriate strategies, such as the provision of bottle banks, to achieve this target. 36. The Council welcomes this initiative and will seek to implement a comprehensive Recycling Plan for Hackney to achieve the target of 25% by the year 2000. The Council will extend the current provision of recycling facilities throughout the Borough in consultation with the local community and within the framework of other policies in this Plan. Where appropriate it will establish centres for the collection and processing of recycled materials both as a requisite of achieving the target and as a stimulant to the local economy and employment. 37. To ensure that the target is attainable the Council will require the full cooperation and involvement of the local community and business. Where appropriate it will require all new development to demonstrate how it can contribute towards this target whether by minimising the waste they produce or by making specific provision for the collection and recycling of waste. 38. F i n a l l y, the Council believes that recycling is only one component, important as it may be, of an integrated waste management strategy. It will therefore seek to reduce, re-use, repair and recycle its own waste wherever possible and influence others to act London Borough of Hackney Adopted UDP – June 1995

ST18 IN IMPLEMENTING ALL PLAN POLICIES THE COUNCIL WILL SEEK TO ENSURE CONSERVATION AND EFFICIENT USE OF ENERGY. WHERE APPROPRIATE TO THE CHARACTER AND AMENITY OF THE BOROUGH; IT WILL ENCOURAGE: A PATTERN OF DEVELOPMENT WHICH MINIMISES THE NEED TO TRAVEL AND MAXIMISES USE OF PUBLIC TRANSPORT; MORE ENERGY-EFFICIENT FORMS OF TRANSPORT; SITING, DESIGN AND CONSTRUCTION OF BUILDINGS WHICH MINIMISE ENERGY CONSUMPTION; DEVELOPMENT OF SOURCES OF RENEWABLE ENERGY; DEVELOPMENT OF COMBINED HEAT AND POWER STATIONS IN ASSOCIATION WITH MAJOR DEVELOPMENTS.

Justification 39. The Council recognises that promoting the efficient use of energy is an essential part of achieving environmentally sustainable development. This is a central theme of the Council’s Energy Strategy and the Council is a signatory of the Declaration of Commitment in support of the DOE Campaign on energy efficiency. Achievement of this aim will support the reduction in carbon dioxide emissions which contribute to global warming and extend the life of finite natural resources, where coal, oil and gas are the principle energy sources. 40. The areas where the Development Plan can have an impact on this aim are by promoting a co-ordinated approach to 49

transport and land-use planning in order to reduce the need to travel and to maximise access to public transport as well as seeking opportunities for energyefficient forms of development and the utilisation of renewable energy sources. A positive view will normally be taken towards proposals which aim to ensure the efficient use of energy, providing they would not cause undue harm to the character of the Borough or amenities of residents.

National Context 41. The Government in its White Paper “This Common Inheritance” (CM. 1200, 1990) and in “Sustainable Development: T h e UK Strategy” (Cm. 2426, 1994) provides the basis for integrating environmental protection and enhancement into policies and practices concerned with economic and social development. The White Paper recognises the importance of D e s i g n Guidance, Conservation Areas and archaeology, and the economic value of environmental quality. It provides for the development of environmental strategies by local authorities as an important element in achieving sustainable development (defined as that which meets the needs of the current generation without affecting the needs of future generations). Hackney Council has developed such a strategy and is seeking to fully integrate environmental objectives with all its policies, plans and programmes including the UDP. Specifically the Council has developed an annual “Action for the Environment” programme which defines the major objectives during each year and provides information on long term aims.

Account is also taken of PPG15, PPG16 and PPG9 which deal with, respectively, Planning and the Historic Environment, Archaeology, and Nature Conservation.

Regional Context SERPLAN’s review of Regional Guidance: A new Strategy for the South East 43. SERPLAN regards the environment and the economy to be inextricably linked and therefore recognise that people demand an environment which is safer and cleaner, ecologically sound, aesthetically pleasing and pollution free. This can be achieved by maintaining and enhancing the environment through the reduction of pollution, congestion and dereliction as well as the conservation of attractive buildings, important habitats, and attractive landscapes. It also emphasises the importance of new development being designed so as to fit harmoniously into its local environment. 44. Town centres are our most important public areas and, almost by definition, they are likely to contain some of the oldest buildings and outworn infrastructure, some of which will require redevelopment or restoration. There should be a firm commitment to improving the environment in these areas most affected by decline and decay and to restoring high value uses to redundant central sites without destroying their often cherished character or causing overdevelopment and increased congestion.

42. This is a clear signal of change on the part of the Government which suggest that more weight can be accorded to environmental issues in the 1990s. 50


Metropolitan Context Strategic Planning Guidance 45. Strategic Planning Guidance gives a clear signal to boroughs to reaffirm the accepted uses and status of Metropolitan Open Land and to define the detailed boundaries in their UDP. Boroughs are also to ensure that nature conservation is given full consideration when policies which can affect SSSIs and other types of protected sites are drawn up. With regards to the built environment, Boroughs are to identify in their UDP and conserve in a sympathetic way, areas of distinctive architectural character and historic interest in order to protect their built heritage. Also of significance is the requirement to protect strategic views, (in H a c k n e y, the backdrop of St. Paul’s Cathedral) and other local views, and the need to take account of and preserve ancient monuments and their settings. Strategic Planning Advice 46. Strategic Planning Advice recognises that environmental policies are primary policies, and all other policies have to take account of the environment and their effect on it. Advice also recognises that environmental improvements are a prerequisite to the successful attraction of employment generating development in strategic centres, and that improvements are also urgently needed to external environments of high density estates, and to promote a better urban environment in and around the older industrial and commercial areas throughout London. 47. L PAC advises the re-affirmation and strengthening of Metropolitan Open Land policies and resistance to the loss of small open public spaces. In the case of Nature conservation, it advises that boroughs identify and bring forward proposals to secure the protection and management of London Borough of Hackney Adopted UDP – June 1995

sites of nature conservation and ecological interest. Canals are accorded a high importance and boroughs are advised to establish a policy framework to increase their use as passenger and freight transport routes, to maximise their recreation and tourism potential, and to protect their landscape, ecological and conservation importance. 48. London has many areas of archeological importance reflecting two millennia of urban settlement. Boroughs are advised to preserve such areas and in cases where this is not possible it is important that investigations are carried out prior to damage or destruction and the findings published and preserved.

Local Context 49. The Borough is characterised by a townscape containing many areas of architectural quality and historic c h a r a c t e r, which is reflected in the 17 conservation areas presently designated and 18 London Squares, numerous churches and sites of archeological interest. In addition the borough has 1,130 buildings on the Department of Environment’s Statutory List of historic and architectural interest and a further 1 , 2 11 buildings on its own Local List which it has invited the Secretary of State to consider for formal listing in a forthcoming review. The Borough also has an impressive range of open water and other features such as Springfield Park, the Lee Valley, Regents Canal and Lea Navigation as well as the Stoke Newington Reservoirs and New River. Mature trees are found throughout the Borough and there are a number of areas of nature conservation importance all of which the Council intends to protect and enhance. 51

50. The built environment in Hackney reflects an historic continuity of settlement which originated along Roman trade routes and developed into nucleated villages around the cleared land of Medieval and Tudor manor houses. Many Georgian buildings survive in the former village cores, while the residential areas between were largely built up in Victorian times, some of these being later developed in the 1960s. The industrial and commercial south of the Borough still displays remnants of the ancient street pattern and is now characterised by Edwardian tenement warehouses and factories. It has experienced considerable change recently in fulfiling its role of serving the growing demands of the metropolis. Despite recent developments, an historical character pervades larg e parts of the borough and sets the context for the environmental quality policies. 51. While many of Hackney’s buildings of historic and architectural value are protected by inclusion on the Statutory List, there are many important buildings (such as churches) which are not protected. There is a need to review the Statutory List and consider inclusion of additional buildings and to find other ways of protecting buildings of local significance. 52. Diversity is also apparent in the mix of different land uses in small areas. While this may provide interest and even some convenience for local residents, it can also result in environmental problems such as noise and congestion. The policies of this Chapter are intended to retain this diversity but minimise such problems in the future. 53. The local environmental consequences of development, including infill schemes, changes of use, extensions, new shopfronts, signs and advertisements, have sometimes been given insufficient weight. Policies and standards are needed to ensure that such proposals improve and 52

enhance the character of the Borough, protect the interests of people who may be affected by them, and conserve the qualities of historic buildings and areas. The Council’s policies aim to secure a balance between cultural needs, economic circumstances and innovative and traditional design approaches. To secure such a balance, adequate scope should be given to black and ethnic minority cultural and design approaches. 54. Greater emphasis on ecological and landscape issues is necessary to complement the densely built-up character of the Borough. In future more attention will be given to achieving high quality planting and landscaping proposals, conserving areas of ecological value, and maintaining open areas that provide relief from built development. 55. Vacant and redundant buildings remain as the result of structural changes in the economy and withdrawal of public and private investment. These buildings represent an important resource and their rehabilitation or redevelopment will be encouraged to meet the Council’s broad objectives, including improvement to the environment. 56. The Borough’s environment has suffered as a result of previous decisions regarding housing and highway planning. Slum clearance and estate development programmes resulted in completely new patterns of streets and communities which in some cases have created problems of poor environment and social conditions. High levels of through traffic contaminated sites, and inappropriate neighbouring uses can result in danger, pollution and congestion for Hackney residents. This Plan seeks to achieve improved environmental standards by addressing these issues.


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JUSTIFICATION

Development and Design EQ1 Development Requirements THE COUNCIL WILL NORMALLY PERMIT DEVELOPMENTS WHICH: (A) RESPECT THE VISUAL INTEGRITY AND ESTABLISHED SCALE, MASSING AND RHYTHM OF THE BUILDING, GROUP OF BUILDINGS OR STREET SCENE (INCLUDING CHARACTERISTIC BUILDING LINES AND PLOT WIDTHS) OF WHICH THEY FORM A PART; (B) ARE OF MATERIALS, FORM AND DETAILING APPROPRIATE TO THE DESIGN AND THE

All development should be of a high standard of design in order to visually integrate with the surrounding area and avoid adverse effect on occupants and the general public. In applying these requirements, the Council will consider each proposal on its merits. The Council will encourage innovative and distinctive approaches to urban design, which reflect the multi-cultural diversity of each locality.

LOCALITY; (C) RETAIN, ENHANCE AND/OR CREATE URBAN SPACES, VIEWS, LANDMARKS AND OTHER TOWNSCAPE FEATURES WHICH MAKE A SIGNIFICANT CONTRIBUTION TO THE CHARACTER OF THE AREA, AND TAKE OPPORTUNITIES TO REVEAL SUCH FEATURES TO PUBLIC VIEW; (D) ARE OF A HEIGHT WHICH ACCORDS AND IS COMPATIBLE WITH NEIGHBOURING BUILDINGS, AND HAVE REGARD TO THE SPECIAL CIRCUMSTANCES OF THE SITE, AND DO NOT DETRACT FROM IMPORTANT OR POTENTIALLY IMPORTANT VIEWS; (E) PROVIDE SAFE AND CONVENIENT ACCESS AND CIRCULATION FACILITIES FOR BOTH USERS AND THE GENERAL PUBLIC, PARTICULARLY PEOPLE WITH DISABILITIES

The established local character and townscape quality can easily be harmed by the insensitive intrusion of buildings or structures which do not relate well to the urban design qualities of the overall area. Some areas have been altered by modernist experiments in architecture and town planning or never developed a cohesive character. In such areas it is considered desirable to use new development to create or reintroduce the traditional urban design characteristic of streets and buildings in intimate relationship, but where there is no overriding architectural continuity, and in certain landmark locations, the possibility may also exist for novel architectural solutions which will add quality to the built legacy of the twentieth century. Innovative approaches which reflect the multi-cultural nature of the Borough may well be appropriate.

AND PEOPLE WITH CHILDREN; (F)

DO NOT CONSTITUTE OVER DEVELOPMENT LEADING TO CRAMPED LAYOUTS AND/OR OBTRUSIVENESS IN RELATION TO ADJOINING PROPERTIES;

(G) PROVIDE ADEQUATE SUNLIGHT, DAYLIGHT AND OPEN ASPECTS TO ALL PARTS OF THE DEVELOPMENT AND ADJACENT BUILDINGS AND LAND; London Borough of Hackney Adopted UDP – June 1995

Hackney contains a number of areas that exhibit distinctive architectural styles. In this respect desirable design features should be retained, repeated or replaced by elements performing a similar townscape function. Satisfactory integration of the external appearance of development will generally be achieved only through use of materials, form, elevations and details (including external finishes and treatments) which are 53

POLICIES (H) DO NOT HAVE ANY UNACCEPTABLE DETRIMENTAL EFFECT UPON THE

JUSTIFICATION

characteristic of the local area and the multicultural nature of the area.

REASONABLE USE AND ENJOYMENT OF ADJACENT BUILDINGS AND LAND, DUE, FOR EXAMPLE, TO VIBRATION, NOISE, SMELLS, EMISSIONS OR PRESENCE OF HAZARDOUS SUBSTANCES AND MATERIALS; (I)

DO NOT ADVERSELY AFFECT THE AMENITIES

All development should relate well to nearby features in order to protect these resources for the future use and benefit of Hackney’s residents and workers. In addition, positive steps should be taken to introduce interest and amenities into the environment.

OF EXISTING OCCUPIERS OF THE SAME DEVELOPMENT, BUILDING OR SITE; (J)

MAXIMISE ENERGY CONSERVATION THROUGH DESIGN, SITING AND ORIENTATION, WHERE CONSISTENT WITH CRITERIA (A) - (D) ABOVE.

The Council is concerned that means of access to and within any development take account of the particular needs of potential users (e.g. women, people with disabilities). The need to cross dangerous roads, take circuitous routes or risk attack in poorly lit or isolated paths to reach homes, jobs, shops and leisure areas is an obstacle to safe and convenient pedestrian movement. Opportunities to create safer, more secure and convenient pedestrian access will be sought. Development must also meet the requirements set out in the Transport chapter, Planning Standards chapter and Supplementary Planning Guidance Notes. The Council will not normally permit high buildings unless they accord with the surrounding townscape and strategic views. Certain areas are particularly sensitive, such as the Lee Valley, the ridge across the northern part of the Borough and the areas of special architectural, landscape and historic character. Existing high buildings should not be regarded as precedents for the future. In a few exceptional cases, high buildings may be acceptable where they meet policy requirements and satisfy detailed investigations to ensure they do not cause adverse effects (e.g. wind turbulence, shadow). Proposed development may overwhelm the original building(s) and/or the surrounding scale of development or result in disproportionately small gardens. The Council wishes to avoid development which results in visual intrusion, unreasonable levels of disturbance or loss of privacy. A detailed

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assessment of the environmental implications of all developments will be carried out to ensure that they meet standards set out in relevant legislation, the Planning Standards C h a p t e r, and Supplementary Planning Guidance Notes. The efficiency with which energy will be used in new developments is influenced by factors such as building/housing type, orientation and siting. The Council will asses development proposals to see how these factors have been utilised to minimise energy consumption but recognises that in many parts of the Borough the established local character and town and streetscape considerations will be the primary determinants of the pattern of new developments. Notes: (i) Adequate daylight will be determined using the Department of the Environment’s “Site Layout Planning for Daylight and Sunlight: A Guide to Good Practice” published by Building Research Establishment 1991. ii) Hazardous substances and materials include radioactive materials. Notification of the storage or use of particular amounts of hazardous substances must be made to the Health and Safety Executive, and certain consultation arrangements may apply. EQ2 Protection of strategic views

IN CONSIDERING PROPOSALS FOR TALL BUILDINGS WHICH MAY AFFECT THE STRATEGIC VIEW AND SETTING OF ST. PAUL’S CATHEDRAL, THE COUNCIL WILL: (A) RESIST DEVELOPMENTS WITHIN THE BACKGROUND CONSULTATION AREA WHICH

Strategic Guidance (RPG3 Annex A November 1991) requires the Council to protect and enhance the designated strategic views and setting of St. Paul’s Cathedral seen from Richmond Hill and Westminster Pier. Descriptions of these views are given in the Planning Standards Chapter.

WOULD HAVE AN ADVERSE EFFECT ON THE SETTING OF THE CATHEDRAL; (B) CONSULT WITH LOCAL AUTHORITIES ALONG THE VIEWING CORRIDOR, AND OTHER APPROPRIATE BODIES, ON PLANNING APPLICATIONS WHICH MAY AFFECT THE SETTING OF THE CATHEDRAL. London Borough of Hackney Adopted UDP – June 1995

In order to maintain the view, no development within the Background Consultation Area shown on the Proposals Map will be permitted which would be of such a height in such a location so as to intrude upon and ‘fill-in’ the backdrop to the Cathedral. 55

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The setting of the Cathedral in the skyline will be maintained by ensuring that the height, location, and materials of proposed buildings do not adversely affect its prominence. Careful consideration of building materials and tone can make a proposal more sympathetic in long distance views. The improvement of the views affected by existing buildings will be sought and new proposals which would be obscured by such buildings will not be permitted.(See Chapter 11) EQ3 Tall Buildings THE COUNCIL WILL RESIST PROPOSALS FOR BUILDINGS WHICH ARE SIGNIFICANTLY HIGHER THAN THEIR SURROUNDINGS, BUT WILL CONSIDER EXCEPTIONS IN CIRCUMSTANCES WHERE THE BUILDING WILL: (A) IDENTIFY WITH AND EMPHASISE A POINT OF CIVIC OR VISUAL SIGNIFICANCE; (B) BE CAREFULLY RELATED TO THE MASSING AND PROFILE OF OTHER NEARBY BUILDINGS AND BUILDING GROUPS; (C) NOT DETRACT FROM THE CHARACTER OR APPEARANCE OF CONSERVATION AREAS AND/OR LISTED BUILDINGS; (D) WOULD NOT ADVERSELY AFFECT THE SETTING OF ST. PAUL’S CATHEDRAL (SEE POLICY EQ2).

Tall buildings have not traditionally been a feature of the Hackney skyline. Whilst it is recognised that intensive use of commercial land may bring economic benefits to Hackney residents, these could come at a great cost to the amenity of large affected areas whose enclosed and small scale built character could become exposed and visually subordinated. Because a potentially wide area can be affected, any tall building proposals will be considered from every perspective from which they would be visible and this will include consultation with neighbouring boroughs when appropriate. Naturally, as they would feature as a focal point in so many views, an extremely high standard of design and materials will be expected. Designs will be required to follow existing adjacent building lines and should be suf f i c i e n t l y heavily modelled to avoid horizontal domination of the local street block pattern. They should take account of wind turbulence and overshadowing and not seriously affect the development potential of adjacent sites. Buildings which house large numbers of personnel could also place a high and intolerable strain on infrastructure such as sewerage and on public transport unless a substantial contribution to upgrading such facilities could be guaranteed through planning agreements.

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EQ4 New Urban Areas THE COUNCIL WILL NORMALLY SEEK TO ENSURE THAT DEVELOPMENTS COVERING LARGE AREAS OF LAND INCLUDE SUBSTANTIAL ELEMENTS OF PUBLIC CIRCULATION SPACE WHICH: (A) IS OPEN AND ACCESSIBLE TO ALL MEMBERS OF THE PUBLIC; (B) ALLOWS AND ENCOURAGES SAFE, CLEAR AND REASONABLY DIRECT ACCESS ALONG POTENTIALLY DESIRABLE THROUGHROUTES; (C) REINSTATES TRADITIONAL OR LOST STREET

The Borough has experienced massive growth in the office sector at its border with the City. Much of this has been in the form of selfcontained and huge office development which have created new areas of external space between buildings. These areas have been welcomed as an extension to Hackney’s public domain. In order to ensure that newly created precincts fully integrate into their surroundings, the design criteria which would normally be applied in the creation and management of new developments in relation to fully public streets will also be applied throughout precinct development proposals.

PATTERNS; (D) PROVIDES FOR OPEN AIR PERFORMANCE SPACE, SCULPTURE AND VISUAL IMAGERY AND AREAS FOR CULTURAL EXHIBITION.

EQ5 Infill Development THE COUNCIL WILL REQUIRE PROPOSALS FOR INFILL DEVELOPMENT TO SATISFY POLICIES EQ1 AND EQ7 AND IN ADDITION TO HAVE REGARD TO THE ARCHITECTURAL CHARACTER, PROFILE AND SILHOUETTE OF ADJOINING BUILDINGS AND TO THE ARCHITECTURAL TRADITIONS OF THE LOCALITY.

Infill development must have due regard to the character and townscape context of its locality. The introduction of incongruous or alien features into a particular townscape context will be resisted. The Council recognises that certain areas could benefit from the introduction of buildings which create a new focus or model form. However, in order to avoid the disruption of strongly unified architecture, replica or characteristic facades may be required.

EQ6 Alterations and Extensions THE COUNCIL WILL NORMALLY PERMIT ALTERATIONS AND EXTENSIONS TO BUILDINGS WHICH: (A) SATISFY POLICIES EQ1, 5 AND 7; (B) RESPECT THE ARCHITECTURAL CHARACTER, PLAN FORM, WINDOW AND DOOR SIZE AND PATTERN, MATERIALS, DETAILS AND OTHER CONVENTIONS OF THE ORIGINAL BUILDING; London Borough of Hackney Adopted UDP – June 1995

The Council is seeking to ensure that the impact of alterations and extensions on the building itself and on the surrounding area is acceptable; therefore all works must be carried out in a manner which maintains the architectural integrity of the building and is sensitive to the locality. Characteristic features and materials should be retained or matched to avoid introduction of crude detailing or incongruous materials. 57

POLICIES (C) RETAIN AND REHABILITATE EXISTING TRADITIONAL FEATURES AND MATERIALS (WHERE REPLACEMENT IS NECESSARY, THIS

JUSTIFICATION

The Council will take account of particular cultural requirements for extended living space.

SHOULD BE OF AUTHENTIC DESIGN, COLOUR, DETAIL AND MATERIAL); (D) CONFINE ALTERATIONS AND EXTENSIONS WHEREVER POSSIBLE TO THE REAR AND MINOR FACADES AND PLACE DUCTWORK, PLANT, LIFTS AND OTHER MECHANICAL

The Council will encourage imaginative and innovative design where the requirements of EQ1, 5, 7, 14 and 17 are met and where the established architectural character of the building and its surroundings would not be harmed.

EQUIPMENT WITHIN THE ENVELOPE OF THE BUILDING OR WHERE THEY CAUSE THE LEAST VISUAL DAMAGE; WHERE A ROOF EXTENSION IS ACCEPTABLE IN PRINCIPLE, SYMPATHETIC AND

N o t e : Stone cladding is considered unacceptable because in most cases it would disrupt the architectural continuity of a building or groups of buildings.

TRADITIONALLY DESIGNED ROOF FORMS AND DORMERS WHICH RELATE TO THE TOWNSCAPE CONTEXT WILL BE SOUGHT WHERE ENLARGEMENT OF BASEMENT WINDOWS IS REQUIRED TO SATISFY DAYLIGHTING STANDARDS OR NEW WINDOWS ARE REQUIRED WITHIN ROOF EXTENSIONS, TRADITIONAL PROPORTIONS SHOULD BE MAINTAINED AND ACCOUNT TAKEN OF THE ALIGNMENT OF WINDOWS ON OTHER FLOORS OF THE BUILDING.

EQ7 External Works and Landscape THE COUNCIL WILL NORMALLY REQUIRE ALL DEVELOPMENT INVOLVING EXTERNAL WORKS TO: (A) RETAIN AND REPAIR EXISTING BOUNDARY WALLS, RAILINGS, AND PAVING UNLESS REPLACEMENT WOULD ACHIEVE A MORE APPROPRIATE AND HIGHER QUALITY OF TREATMENT. THE OPPORTUNITY FOR INCOPORATING PUBLIC ART SHOULD BE INVESTIGATED IN REPLACEMENT SCHEMES

The spaces between and surrounding buildings must be designed to the highest standards due to their collective importance both as a setting for new development and their influence on the wider townscape. In many cases preservation of existing patterns of enclosure or use of traditional surfacing materials will be required to maintain the character and visual interest of the neighbourhood.

(WHERE REPLACEMENT IS NECESSARY NEAR LISTED BUILDINGS OR IN CONSERVATION AREAS THIS SHOULD BE OF AUTHENTIC DESIGN, COLOUR, DETAIL AND MATERIALS); (B) ENSURE THAT ANY NEW BOUNDARY WALLS, RAILINGS, STREET FURNITURE, PAVING AND

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Carelessness and ignorance of the effects of heavy soils, waterlogging and other sideeffects of construction can needlessly result in damage or destruction of vegetation and wildlife. Measures need to be taken to avoid such harm to the environment. London Borough of Hackney Adopted UDP – June 1995

POLICIES SURFACE MATERIALS ARE WELL DESIGNED AND LOCATED AND CONSTRUCTED OF APPROPRIATE MATERIALS TO RELATE TO THE CHARACTER OF THE STREET OR AREA; (C) INCLUDE MEASURES TO PROTECT EXISTING TREES AND MINIMISE DAMAGE AND DISTURBANCE TO LANDSCAPE, WILDLIFE, AREAS OF ECOLOGICAL INTEREST AND ARTEFACTS WORTHY OF PRESERVATION, BOTH WITHIN AND ADJACENT TO ANY DEVELOPMENT; (D) INCORPORATE APPROPRIATE LANDSCAPING,

JUSTIFICATION

Existing trees and landscaping may need to be reinstated and supplemented to achieve a more attractive local environment, to relate development to the surrounding spaces and townscape and contribute to the Borough-wide network of green spaces. The incorporation of public works of art into new developments can contribute to the visual amenity of the local environment but is dependent upon site circumstances. Landscape schemes carried out in conjunction with a development must include measures for the future maintenance and management of planting. (See also Policies EQ31-EQ33).

TREE PLANTING, AND REINSTATEMENT WORKS WITH AGREED PROGRAMMES FOR COMPLETION AND MAINTENANCE. THE COUNCIL WILL ENCOURAGE THE SITING OF PUBLIC WORKS OF ART.

EQ8 Percent for conservation THE COUNCIL WILL ENCOURAGE DEVELOPERS TO MAKE VOLUNTARY CONTRIBUTIONS TOWARDS CONSERVATION PROJECTS THROUGH A “PERCENT FOR CONSERVATION’ SCHEME

Many boroughs are supporting ‘per cent for art’ schemes in their UDP. Whilst the Council welcomes the principle of more public art, the practice has been that some lar g e developments on the City fringe have provided sculpture within their immediate localities leaving the day to day living environment of residents relatively unaffected. In recognition both of the willingness of developers to make contributions to the public realm, and of the need to spread the benefits of inward investment, this policy encourages contributions towards conservation of the Borough’s rich and well distributed heritage of listed buildings. Many historic buildings are under threat due to lack of investment. The Hackney Historic Buildings Trust will develop a selection of restoration proposals with detailed costings and will manage a fund to ensure a well publicised programme of investment aimed at saving those buildings most at risk. Developer contributions will be recorded on specially commissioned plaques to be erected both on the list of the buildings


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which have benefited and those of the new developments. Ideally a range of projects will become available at different costs enabling developers to select individual projects for complete sponsorship. Developers will therefore be invited to choose between enhancing the environment with new works of art, or helping to restore and bring back into use under resourced buildings of the B o r o u g h ’s great cultural and architectural legacy. The scheme operates by way of sponsorship and is applicable throughout the Borough. The making of a contribution does not constitute a planning obligation and neither the making nor withholding of a contribution is relevant to the consideration of individual planning applications.

EQ9 Development and the River Lee Navigation Floodplain IN AREAS AT RISK FROM FLOODING, THE COUNCIL WILL, WHERE APPROPRIATE, REQUIRE FLOOD PROTECTION MEASURES TO BE INCLUDED IN DEVELOPMENT PROPOSALS. THE FLOOD PROTECTION MEASURES TO BE INCLUDED IN DEVELOPMENTS WILL BE DEFINED BY THE COUNCIL IN CONSULTATION WITH THE NATIONAL RIVERS AUTHORITY AND BRITISH WATERWAYS.

Note: For areas at risk from flooding, see map at end of this chapter. See also proposal 45

There is a general presumption against development in the flood plain because not only is the development itself at risk but such development may increase the risk of flooding to established uses elsewhere. To protect people and property from flooding it is important that developments within the flood plain meet, where necessary, the appropriate flood requirement standards which will be defined by the Council following consultation with the NRA. The Council will consult the NRA when development is proposed in areas at risk from flooding because not only is the development itself at risk but such development may increase the risk of flooding to established uses elsewhere. Development on the floodplain may not be possible on any particular site, and may otherwise only be possible if appropriate flood protection measures are incorporated into the development proposal.

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EQ10 Vacant Land THE COUNCIL WILL SEEK TO ESTABLISH POSITIVE USES FOR VACANT OR UNCARED FOR LAND AND WILL UNDERTAKE OR ENCOURAGE PRIVATE OWNERS TO UNDERTAKE ENVIRONMENTAL IMPROVEMENTS. TEMPORARY USES FOR VACANT OR DERELICT LAND WILL BE ENCOURAGED PENDING REDEVELOPMENT PROVIDING SUCH A USE WOULD NOT CONFLICT WITH POLICIES ELSEWHERE IN THE PLAN AND WOULD NOT HINDER THE REDEVELOPMENT OF THE SITE.

There are various small but significant patches of land notably in the south east of the Borough, where new road or housing layouts have been developed without proper integration into their surroundings. The responsibility for and rights of use over such spaces remain unclear: they are neither fully public nor fully available for private enjoyment. This has resulted in some unmanaged corners of waste land or now disused sections of carriageway. These look unsightly and serve as a permanent reminder of the tension that was created between the grand schemes of the 1960s and the traditional pattern of streets. The Council will consider proposals on individual merit but will generally support the rationalisation of such space for uses such as private garden or public open space. Large unused spaces will be considered for redevelopment. The Council will take into account the nature conservation interest and/or community use of vacant land and will protect and enhance this, where appropriate. (See also Policy OS11).

Conservation Areas EQ11 Conservation Area guidance THE COUNCIL WILL FORMULATE POSITIVE SCHEMES FOR THE PRESERVATION AND ENHANCEMENT OF DESIGNATED CONSERVATION AREAS ON A PROGRESSIVE BASIS AS STAFF RESOURCES PERMIT.


The Council is required under the terms of the Town and Country Planning (Listed Buildings and Conservation Areas) Act 1990 to produce schemes for the preservation and enhancement of its conservation areas. Not all parts of all conservation areas within the Borough contribute positively to the characteristics on which their designation was justified. Many contain unsympathetic or poorly-scaled recent development and vacant land; some have poor street environments or ‘clutter’ such as unauthorised advertisements, and some contain buildings of historic or architectural merit which have become dilapidated. As and when staff resources permit, the Council will draw up schemes to address these shortcomings, in consultation 61

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with local residents, businesses and interested local and national organisations. English Heritage can be an important source of funding in Conservation Areas and their current method of distributing grants is the Conservation Area Partnership scheme. Where resources can be identified the Council, together with other funding o rganisations, will seek to promote such schemes in cooperation with English Heritage. EQ12 Protection of Conservation Areas THE COUNCIL WILL ONLY NORMALLY PERMIT DEVELOPMENT PROPOSALS WITHIN, ADJACENT TO, OR AFFECTING A CONSERVATION AREA WHICH WOULD PRESERVE OR ENHANCE ITS CHARACTER OR APPEARANCE.

Any development proposals in Conservation Areas will be expected to preserve or enhance the special architectural or historic interest of the character, or appearance of the Conservation Area. This includes proposals for demolition, partial demolition, alterations and extensions, telecommunications equipment and environmental works. Works to trees and the installation of advertisements will also be carefully considered to ensure that the character and appearance of a Conservation Area are not harmed. The Council will consider seeking direction under Article 4 of the Town and Country Planning (General Permitted Development) Order 1995 to restrict permitted development rights should these constitute a significant threat to the character of a Conservation Area. The successful integration of new developments and alterations or extensions to buildings is to some extent dependent on detailing such as materials, colour and vertical or horizontal emphasis as well as bulk, height and overall massing. As such the Council will not, normally, accept outline applications in Conservation Areas. The impact of new developments which are adjacent to or nearby Conservation Areas can only be assessed on a case by case basis having regard to the nature of the proposal

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and the character of the particular Conservation Area. Tall buildings, for example, might affect the setting of important streetscenes when viewed from within the Conservation Area. A new development or proposed change of use, within or close to a Conservation Area which would draw significant additional traffic through or into the Conservation Area could also have an adverse impact on its character.

EQ13 Demolition in Conservation Areas THE COUNCIL WILL NORMALLY GRANT CONSERVATION AREA CONSENT TO DEMOLISH OR PARTIALLY DEMOLISH NON-LISTED BUILDINGS IN CONSERVATION AREAS; (A) WHERE THE EXISTING BUILDING DOES NOT MAKE A POSITIVE CONTRIBUTION TO THE CHARACTER AND APPEARANCE OF THE CONSERVATION AREA; AND/OR WHERE

Demolition of buildings in a Conservation Area would generally detract from the area’s c h a r a c t e r. Such areas are sensitive to the demolition of even one building and therefore the Council will enforce the statutory procedures which require a separate application for Conservation Area Consent to demolish or partially demolish any building/structure in a Conservation Area.

DEMOLITION IS CONSIDERED ACCEPTABLE AND THERE ARE SATISFACTORY PROPOSALS FOR REDEVELOPMENT OF THE SITE, CONSERVATION AREA CONSENT WILL BE GRANTED CONCURRENTLY WITH FULL PLANNING PERMISSION. THIS CONSENT WILL EITHER BE CONDITIONAL UPON THE MAKING OF A CONTRACT FOR THE WORKS NECESSARY TO IMPLEMENT THE APPROVED REDEVELOPMENT SCHEME AS ONE OPERATION OR SUBJECT TO A LEGAL AGREEMENT TO SECURE THE SAME OBJECTIVE. (B) WHERE THE PROPOSED REPLACEMENT BUILDING, OTHER DEVELOPMENT OR VACANT SITE WOULD PRESERVE OR ENHANCE THE CHARACTER OR APPEARANCE OF THE CONSERVATION AREA.


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EQ14 Alterations and extensions of buildings in Conservation Areas THE COUNCIL WILL PERMIT PROPOSALS FOR ALTERATIONS AND EXTENSIONS TO BUILDINGS IN CONSERVATION AREAS WHERE THEY COMPLY WITH POLICIES EQ1, 5, 6, 7, 11 AND 12; AND (A) WHERE THEY PRESERVE OR ENHANCE THE CHARACTER OR APPEARANCE OF THE AREA: THEY SHOULD NORMALLY BE CONFINED TO

When considering proposals for altering or extending buildings in a Conservation Area, the Council will pay special attention to the desirability or preserving or enhancing the character or appearance of the area. Views from surrounding buildings and other areas, in addition to street level views may also be important.

THE REAR OR LEAST IMPORTANT FACADES AND SHOULD NOT UPSET THE SCALE OR PROPORTIONS OF BUILDINGS OR ADVERELY AFFECT THE CHARACTER, APPEARANCE OR SETTING OF NEIGHBOURING BUILDINGS;

The removal of traditional features (which may require conservation area consent) will normally be resisted as will inappropriate nontraditional materials that do not respect the character of the area.

(B) THEY PRESERVE (OR, WHERE MISSING, REINSTATE) CHARACTERISTIC FEATURES SUCH AS DOORS, WINDOWS, ROOF DETAILS (E.G. CHIMNEYS, CHIMNEY POTS, ROOF LINE AND PITCH) AND PARTY WALL UPSTANDS EVEN WHERE THESE ELEMENTS MAY BE REDUNDANT. WHERE ROOF EXTENSIONS ARE ACCEPTABLE IN PRINCIPLE THEY SHOULD ACCORD WITH THE PERIOD AND

Where the existing roof line of a group, pair or terrace is largely unimpaired by extensions; roof extensions would not, normally, be acceptable in any form. Proposals for roof extensions on buildings or terraces which are a complete architectural composition or where the building would be exposed to long views from public spaces will, normally, be resisted as will visible structures on roofs such as terrace railings, conservatories, and plant.

CHARACTER OF THE BUILDING(S) AND THE SURROUNDING AREA. ROOF EXTENSIONS WILL NOT NORMALLY BE ACCEPTABLE WHERE THEY WOULD HARM THE ARCHITECTURAL INTEGRITY OF A BUILDING OR THE UNITY OF A GROUP OR TERRACE.

EQ15 Designation of New Conservation Areas THE COUNCIL WILL DESIGNATE FURTHER CONSERVATION AREAS, ON A PROGRESSIVE BASIS, AS STAFF RESOURCES PERMIT. AREAS WILL NORMALLY BE DESIGNATED IF, AFTER DETAILED STUDY, THEY ARE CONSIDERED TO REPRESENT IMPORTANT HISTORICAL

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H a c k n e y ’s historic legacy is both rich and extremely varied. The Borough currently has 16 designated conservation areas, where the Council pays special attention to preserving and enhancing their special character and appearance. These areas have a very diverse character, ranging from the industrial heritage of South Shoreditch to residential areas and historic open spaces such as Clapton Common. London Borough of Hackney Adopted UDP – June 1995

POLICIES EXAMPLES OF ANY OF THE FOLLOWING: (A)

TOWN CENTRE AND VILLAGE CORES;

(B)

RESIDENTIAL AREAS;

(C)

OPEN SPACES AND THEIR SETTING;

(D)

INDUSTRIAL HERITAGE.

JUSTIFICATION

There are still many locally cherished areas that are not yet protected by conservation area designation: Over the life of this Plan, the Council intend to significantly increase the protection offered to Hackney’s heritage by declaring further conservation areas. These will cover four main types of area as well as extensions to existing areas. These types are: •

town centre and village cores: with buildings of varying age and type that will also include Georgian and Victorian ribbon development; for example, Dalston Lane and Broadway Market.

•

residential areas: especially areas characterised by villas - a particularly well developed Hackney building type; for example Mapledene/Graham Road area.

•

open spaces and their settings; for example, London Fields and Stoke Newington Common.

•

industrial heritage; for example, the R e g e n t ’s Canal and Waterworks Lane, Lea Bridge.

Note: Areas which have initially been identified as a priority for designation are included in the Schedule of Proposals and further work is being undertaken to assess the suitability of these and other areas. Dependent on further investigation this Schedule could be subject to further amendment. Historic Buildings and Structures EQ16 Protection of Listed Buildings THE COUNCIL WILL NORMALLY REQUIRE THAT BUILDINGS OF SPECIAL ARCHITECTURAL OR HISTORIC INTEREST AND THEIR FEATURES SHALL BE PRESERVED. LISTED BUILDING CONSENT FOR DEMOLITION WILL NOT NORMALLY BE GRANTED UNLESS EVERY POSSIBLE EFFORT HAS BEEN MADE TO SUSTAIN AN EXISTING USE OR FIND AN APPROPRIATE NEW ONE. London Borough of Hackney Adopted UDP – June 1995

Historic buildings make an important contribution to the environment of Hackney. The Council attaches the utmost importance to the preservation, protection and correct maintenance of 1,130 buildings on the Statutory List of buildings of architectural and historic interest and others considered worthy of inclusion on the Statutory List. Proposals 65

POLICIES THE COUNCIL WILL NOT NORMALLY GRANT LISTED BUILDING CONSENT FOR THE

JUSTIFICATION

for facade schemes will not normally be acceptable.

DEMOLITION OR SUBSTANTIAL DEMOLITION OF A LISTED BUILDING AND/OR ANY BUILDING OR STRUCTURE WITHIN ITS CURTILAGE WHICH CONTRIBUTES TO THE SPECIAL ARCHITECTURAL OR HISTORIC INTEREST OF THE PRINCIPAL BUILDING OR IS OF ARCHITECTURAL OR

N o t e : Listed Building Consent from the Council is required in respect of any material alterations, including demolition, both internal and external, to a listed building or within the curtilage or setting of a listed building.

HISTORIC INTEREST IN ITS OWN RIGHT.

The Council will take appropriate legal action, including Repairs Notices, Emergency Repairs, Compulsory Purchase or Building Preservation Notices, to preserve buildings and structures and to prevent deterioration of these properties where it appears to constitute a first step towards seeking their demolition.

EQ17 Alterations to Listed Buildings THE COUNCIL WILL, NORMALLY, REQUIRE THAT ANY MATERIAL ALTERATIONS TO A LISTED BUILDING OR WITHIN ITS CURTILAGE SHOULD: (A) NOT BE DETRIMENTAL TO THE SPECIAL INTEREST OF THE BUILDING AND HARMONISE WITH THE PERIOD, STYLE, MATERIALS AND DETAILING OF THE BUILDING; (B) WHEREVER POSSIBLE, RETAIN AND REPAIR EXISTING FEATURES AND FABRIC, OR, IF MISSING, REPLACE THEM IN A SYMPATHETIC MANNER; (C) NOT HARM THE STRUCTURAL INTEGRITY OR STABILITY OF THE BUILDING OR THAT OF ADJOINING BUILDINGS OR STRUCTURES;

The value of many historic buildings does not just relate to their superficial appearance but also derives from the special internal fabric and features (e.g. panelling and fire surrounds). The Council is obliged to control any proposed works which may damage the irreplaceable and unique aspects of historic structures and therefore limit works (including works to satisfy structural, safety or public health requirements) to those which are strictly necessary to extend the life of the building. All proposed works should be shown in planning and listed building consent applications and any matter that might be the subject of control under other legislation or by any other authority should be resolved or be capable of resolution in a satisfactory manner.

(D) BE CAREFULLY SUPERVISED AND PROFESSIONALLY EXECUTED, USING SPECIALIST LABOUR WHERE APPROPRIATE; (E) WHERE POSSIBLE, RESPECT AND PRESERVE THE INTEGRITY OF THE ORIGINAL PLAN

Further explanation and advice is available in Supplementary Planning Guidance Notes. N o t e : Policies EQ36 and EQ37 refer to advertisements in relation to listed buildings.

FORM; (F)

WHERE EXTENSIONS ARE PROPOSED, RELATE SENSITIVELY TO THE ORIGINAL BUILDING AND NOT ADVERSELY AFFECT THE INTERNAL OR EXTERNAL APPEARANCE OF THE BUILDING OR ITS SETTING;

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(G) WHERE THEY EXIST, RETAIN ROOF STRUCTURES OF INTRINSIC ARCHITECTURAL OR HISTORIC INTEREST. (H) ACCORD WITH OTHER POLICIES IN THE PLAN, PARTICULARLY EQ1, 5, 6 AND 14. THE COUNCIL WILL NORMALLY REQUIRE THAT BUILDINGS OF SPECIAL ARCHITECTURAL OR HISTORIC INTEREST AND THEIR FEATURES SHALL BE PRESERVED. LISTED BUILDING CONSENT FOR DEMOLITION WILL NOT NORMALLY BE GRANTED UNLESS EVERY POSSIBLE EFFORT HAS BEEN MADE TO SUSTAIN AN EXISTING USE OR FIND AN APPROPRIATE NEW ONE. THE COUNCIL WILL NOT NORMALLY GRANT LISTED BUILDING CONSENT FOR THE DEMOLITION OR SUBSTANTIAL DEMOLITION OF A LISTED BUILDING AND/OR ANY BUILDING OR STRUCTURE WITHIN ITS CURTILAGE WHICH CONTRIBUTES TO THE SPECIAL ARCHITECTURAL OR HISTORIC INTEREST OF THE PRINCIPAL BUILDING OR IS OR ARCHITECTURAL OR HISTORIC INTEREST IN ITS OWN RIGHT.

EQ18 Setting of Listed Buildings THE COUNCIL WILL NORMALLY NOT PERMIT ANY DEVELOPMENT WHICH ADVERSELY AFFECTS THE SETTING OF A LISTED BUILDING.

Unsympathetic development may seriously detract from the appearance and/or setting of a listed building.

EQ19 Changes of use of Listed Buildings WHERE THE ORIGINAL USE OF A LISTED BUILDING IS NO LONGER POSSIBLE OR REQUIRED, PROPOSALS FOR A CHANGE OF USE WILL BE GIVEN FAVOURABLE CONSIDERATION PROVIDING THE PROPOSED USE IS NOT DETRIMENTAL TO THE SPECIAL INTEREST OF THE BUILDING OR TO ITS SETTING.


The best use for a listed building is that for which is was intended, however, in some cases this will not be reasonable or practical. The Council does not wish to encourage inappropriate or deleterious land uses solely to secure improvements to historic buildings, but in certain cases changes of use which enhance the historic building or facilitate its maintenance may be considered. Exceptions to the Council’s policies regarding particular types of uses may be permitted if this is the sole means of preserving and maintaining a building of considerable value. 67

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Listed Building Consent may also be required where internal or external alterations would accompany the proposed change of use in order to comply with other operational or statutory requirements, for example the Building Regulations. Where these alterations would be detrimental to the special interest of the building the proposal, itself, may be unacceptable.

EQ20 Buildings of Local Significance THE COUNCIL WILL TAKE APPROPRIATE ACTION TO SECURE THE RETENTION AND ENHANCEMENT OF BUILDINGS AND STRUCTURES OF LOCAL SIGNIFICANCE WHICH ARE NOT ON THE STATUTORY LIST.

There are a number of exceptional buildings in Hackney, particularly churches, which are not on the Statutory List, often because they were overlooked when the Statutory List was compiled. These buildings are considered to be of local significance because of their architectural/industrial archeological merit and/or townscape importance, local historic associations, and value to the community as cherished landmarks. Therefore, the Council will seek to protect and enhance these buildings as far as possible within its powers, and will monitor and review the list with a view to making recommendations for English Heritage to review the Statutory List in the light of current listed criteria. The list of Buildings of Local Significance is available. Note: Appropriate action may include Building Preservation Notices, local listing, Article 4 Directions or requests to the Department of the Environment for spot listing or scheduling as an ancient monument.

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Metropolitan Open Land EQ21 Metropolitan Open Land THE COUNCIL WILL SEEK TO ENSURE THAT THE AREAS SHOWN AS METROPOLITAN OPEN LAND ON THE PROPOSALS MAP REMAIN IN PREDOMINANTLY OPEN USE. ANY BUILT DEVELOPMENT SHOULD BE ASSOCIATED WITH THE OPEN SPACE, NATURE CONSERVATION AND/OR RECREATIONAL USE OF METROPOLITAN OPEN LAND, AND WILL BE SUBJECT TO THE

Metropolitan Open Land needs to be safeguarded as much as the Metropolitan Green Belt and hence the same presumption against inappropriate development applies. It is strategically important open space, land or water in London, either publicly or privately owned, and with or without public access, which either:

FOLLOWING REQUIREMENTS: (A) THAT ITS PRIME FUNCTION SHOULD BE

(i) Contributes to establishing London’s special identity; or

ANCILLARY TO THE MAINTENANCE OR USE OF THE ADJOINING OPEN LAND;

(ii) Helps to separate and/or define London's distinctive communities; or

(B) THAT, WHEREVER POSSIBLE, NEW BUILDINGS ARE SITED CLOSE TO EXISTING BUILT DEVELOPMENT OR ON THE PERIPHERY OF THE OPEN LAND; (C) THAT IT HAS A HIGH STANDARD OF DESIGN AND LANDSCAPING.

(iii) Creates a positive and significant open space experience when used, passed or crossed by Londoners or visitors; or (iv) Accommodates sites of metropolitan importance in terms of landscape, buildings, structures, natural features and ecology; or special events of importance to London or a sector of London because of their rarity, special quality, historical association, importance to tourism, or attracting large numbers of participants; or (v) Provides leisure or recreation amenities or facilities with a national, regional, London-wide or one involving more than two boroughs; or (vi) Forms a Green Chain of related open spaces and linking footpaths, bridleways, riverside and canalside walks, and towpaths. The area defined on the proposals map as Metropolitan Open Land will be safeguarded from built development. Strategic Guidance for London states that boroughs should reaffirm the accepted uses and status of areas of Metropolitan Open Land. Provided in all


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cases that any ancillary buildings do not damage the open nature or character of the site, appropriate uses within Metropolitan Open Land are: (i) Public and private open space and playing fields. (ii) Agriculture, woodlands and orchards. (iii) Rivers, canals, reservoirs, lakes, docks and other open water. (iv) Golf courses. (v) Allotments and nursery gardens. (vi) Cemeteries and associated crematoria. (vii) Nature conservation. In implementing this policy the Council will have proper regard to the provisions of the Lee Valley Regional Park Plan.

Lea Valley Regional Park EQ22 Proposals by Lee Valley Regional Park Authority THE COUNCIL WILL SUPPORT PROPOSALS PUT FORWARD BY THE LEE VALLEY REGIONAL PARK AUTHORITY WHICH: (A) ENHANCE AND CREATE RECREATIONAL OPPORTUNITIES FOR BOROUGH RESIDENTS; (B) IMPROVE THE LANDSCAPE QUALITY; (C) CONSERVE AREAS OF ECOLOGICAL INTEREST; PROVIDING THAT THEY ARE CONSISTENT WITH POLICIES ELSEWHERE IN THIS PLAN.

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The Lee Valley Regional Park Authority intends to implement new leisure and recreation facilities in accordance with its Park Plan. Generally the Council will support proposals for the Park which introduce activities and management policies that maximise its attraction and accessibility to Hackney residents and help meet leisure deficiencies previously identified. In the case of the Defined Employment Areas, however, the Council’s policy is to encourage employment related development (Policy E2). The Council will, therefore, have to consider carefully the implications of any possible conflict between proposals from the Lee Valley Regional Park Authority and the provision of new industrial premises. London Borough of Hackney Adopted UDP – June 1995

POLICIES

JUSTIFICATION

Proposals will be expected to be sensitively planned and designed to respect the open character of the Valley and its areas of nature conservation interest which are scarce and irreplaceable in a built-up Borough such as Hackney.

EQ23 Development Affecting the Park THE COUNCIL WILL REQUIRE DEVELOPMENT IN OR NEAR THE LEE VALLEY REGIONAL PARK SHOWN ON THE PROPOSALS MAP TO TAKE ACCOUNT OF THE SPECIAL LANDSCAPE AND OPEN WATER CHARACTER AND, WHERE APPROPRIATE, TO RETAIN, IMPROVE OR PROVIDE PUBLIC ACCESS PARTICULARLY FOR PEDESTRIANS, CYCLISTS AND THOSE ARRIVING BY PUBLIC TRANSPORT.

The future success of the Lee Valley Regional Park is also dependent on the type and quality of new development on vacant or redundant sites within the Park corridor. The Council will expect development proposals to enhance the special character of the area (see Policy EQ30), and to take account of nature conservation. Walthamstow Reservoirs SSSI is proposed as a Special Protection Area under the EEC Birds Directive 79/409 and is therefore of national and international importance. Development proposals are also required to safeguard opportunities for future park access, activities or facilities wherever possible in accordance with the other policies of this chapter.

Canals and the River Lee Navigation EQ24 Canalside Development Proposals IN CONSIDERING PROPOSALS WHICH AFFECT THE CANALSIDE ENVIRONMENT, THE COUNCIL WILL TAKE ACCOUNT OF: (A) LONG DISTANCE AND LOCAL VIEWS; (B) WILDLIFE HABITATS; (C) OPPORTUNITIES CREATED FOR PUBLIC ACCESS.

The canal is a Defined Area of Special Landscape Character. In order to preserve this quality and improve the appearance, use and accessibility of the Borough’s river and canals it is important to establish a consistent treatment. This will ensure the maintenance of design quality, whilst emphasising and complementing the varied character of the canal vernacular. To this effect the Council aims to pursue a programme of canalside improvement schemes. Canalside views and skylines are of importance in urban areas. When viewed from the canal, important landmarks act as useful points of reference.


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The Council recognises the value of the canal as a pedestrian walkway and aims to link the canal towpath with the local pedestrian network to promote the increased use of the former. Wherever possible new development proposals will be encouraged to create new public access. The Council’s recognition of the value of the canal as a recreational amenity for the Borough is also being pursued through the London Canals Committee (LCC). The latter is made up of authorities through which the canal runs, and organisations such as the Inland Waterways Association, British Waterways and the London Tourist Board. The Committee has produced a set of guidelines for canalside developments and the Council ensures that full account is taken of these when considering new canalside development proposals. Notwithstanding the role of canalside building in providing employment, the Council aims to ensure that new development is visually sensitive to the canalside environment. Development should be of a particularly high standard and take account of the special waterside qualities of its location. Small scale wildlife habitats along the banks of the canal or on adjoining sites may be of importance to nature and should be preserved in the interest of nature conservation.

EQ25 Water-related uses THE COUNCIL WILL SUPPORT PROPOSALS FOR WATER RELATED USES WHICH CONTRIBUTE TO THE TRADITIONAL CHARACTER OF THE REGENT’S CANAL AND RIVER LEE NAVIGATION.

The historical character of the canal adds to its asset as a valuable education and recreational resource which should be protected. The canal’s character is derived from structures such as bridges, locks and wharves. These historic features together with its traditional buildings add to the unique character of this waterside environment. The canal plays an important role in the provision of recreation on foot and by boat for Borough residents. Under the 1968 Transport

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Act canals were designated as ‘Cruising’, ‘Commercial’ and ‘Remainder’ waterways. The Regent’s Canal and the River Lee navigation are a cruising waterway and a commercial waterway, respectively. The Council would like to see this use promoted together with commercial or other traditional water related uses. Note: Policies OS12 and OS13 relate to the recreational use of canals. EQ26 Canals and Nature Conservation THE COUNCIL WILL SEEK TO PROTECT AND ENHANCE THE NATURE CONSERVATION INTEREST OF THE REGENT’S CANAL, THE RIVER LEE AND THE LEE NAVIGATION AND ENCOURAGE THE

The encroachment of development upon established wildlife habitats has led to a reduction in the area of land available to wildlife in the Borough.

CREATION OF NEW WILDLIFE HABITATS AS PART OF NEW DEVELOPMENTS.


The Regent’s Canal and the River Lee/Lea Navigation are important biological corridors and have been identified on the proposals map as areas of nature conservation interest. Along the banks of the canals and the River Lee are areas which, although too small to be designated as nature conservation areas, are recognised by the London Wildlife Trust as being of importance for wildlife. These waterways are ideal habitats for waterborne species such as ducks, swans and Canada geese. They are unique in that they are ecological areas of importance both in their own right, and because they form a wildlife link between sites in the Borough and sites outside, as part of a London-wide network. The waterways also encourage the migration of wildlife between scattered open spaces within inner city areas. As there are few areas of nature conservation interest in the Borough it is important to protect existing sites and assess the potential of other areas.

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EQ27 Residential Moorings THE COUNCIL MAY PERMIT RESIDENTIAL MOORINGS SUBJECT TO OTHER POLICIES IN THIS PLAN IF IT IS SATISFIED: (A) THAT THEY ARE LOCATED ON THE NONTOWING SIDE OF THE CANAL CLOSE TO AMENITIES AND PUBLIC TRANSPORT; (B) THAT ADEQUATE AND MANAGED SERVICE FACILITIES ARE PROVIDED FOR EACH MOORING.

The paucity of facilities together with the increasing number of illegal moorings has reinforced the demand for adequate and well managed moorings in the Borough. There are three locations used for permanent moorings in Hackney: Kingsland Basin, the entrance to Wenlock Basin and Actons Lock. None of these are authorised for residential use. The Council recognises the need for residential moorings to cater for any existing demand and will co-operate with British Waterways to regulate these. The Council is anxious that residential moorings do not conflict with the navigation and recreational uses of the canal and its towing path. For this reason residential moorings would normally be undesirable on the towing path bank of a waterway. The number of boats at any mooring site should not be so great as to have a detrimental effect on the canal amenity or the amenity of adjoining areas. In considering applications for residential moorings (and other types of moorings) the Council will have regard to the London Canals Committee’s “Guidelines for Canalside Moorings”. In the case of the Lea Navigation/River Lea, much of the waterway lies within an area of Metropolitan Open Land and of Special Landscape Character where there is a presumption that land will remain in predominantly open use and that the landscape will be protected. Any application for residential moorings on the Lee Navigation/River Lea will therefore be carefully assessed for the impact which it could have on the openness and amenity of the Lee Valley.

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Other Special Areas EQ28 London Squares THE COUNCIL WILL NOT NORMALLY PERMIT DEVELOPMENT WHICH DETRACTS FROM THE CHARACTER AND AMENITY OF THE LONDON SQUARES SHOWN ON THE PROPOSALS MAP AND WILL USE ITS POWERS TO ENSURE THAT THE USES IN THE SQUARES AND/OR THE DEVELOPMENT OF ADJACENT AREAS ENHANCES THEIR APPEARANCE.

London Squares are protected by an Act of Parliament which imposes considerable constraints over and above the Planning acts. Hackney’s London Squares are an important part of London’s architectural heritage and their protection is a concern of the metropolitan area as a whole. The Council wishes to preserve and enhance the character and quality of the Borough’s eighteen London Squares, including that which results from particular relationship of buildings, streets, street furniture and landscaping. London Squares are often the focus of conservation areas and in these cases will also be subject to the conservation area policies elsewhere in this Chapter.

EQ29 Archaeological heritage IN THE AREAS OF ARCHAEOLOGICAL PRIORITY SHOWN ON THE PROPOSALS MAP AND ELSEWHERE AS NECESSARY THE COUNCIL WILL NORMALLY REQUIRE: (A) PRIOR ASSESSMENT AND PLANNING FOR THE ARCHAEOLOGICAL IMPLICATIONS OF DEVELOPMENT (IF NECESSARY BASED UPON A PRELIMINARY ARCHAEOLOGICAL SITE EVALUATION PRIOR TO A PLANNING DETERMINATION); AND (B) FOR SITES REQUIRING IN SITU PRESERVATION, SUITABLE DESIGN, LAND USE AND MANAGEMENT; OR (C) FOR SITES NOT REQUIRING IN SITU PRESERVATION, AN APPROPRIATE LEVEL OF ARCHAEOLOGICAL INVESTIGATION AND PRESENTATION TO THE PUBLIC OF ANY FINDS.

The Archaeological Heritage of Hackney is considerable and includes the internationally important Palaeolithic site between Stamford Hill/Upper Clapton, Medieval and Elizabethan remains in South Shoreditch as well as dozens of smaller sites throughout the Borough. The Council will use its available powers to ensure that such remains are not needlessly destroyed. The preservation of this valuable education and cultural asset is a legitimate objective against which the needs of development must be carefully balanced and assessed in line with Government advice. The physical preservation in situ of important sites will be sought, where desirable and feasible. Preservation by record (excavation) is a second best option and developers should not expect to obtain planning permission for archaeologically damaging development merely because they arrange for the recording of sites. The Council encourages developers to consider the archaeological aspects of a development site as early as possible in order to reduce


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uncertainty and conflict and will itself seek professional advice on assessing the archaeological importance and potential of a site. Where appropriate the Council will require an archaeological statement (a written assessment) and/or an archaeological field evaluation (on site assessment by trial work) before a decision on the application is taken. The policy will apply, particularly, in areas of archaeological priority but may be applied elsewhere, on the advice of English Heritage, should the archaeological evidence suggest that this would be appropriate. The case for in situ preservation will be assessed on an individual basis, weighing the importance of the remains against the needs for development. Where presentation to the public of the preserved in situ remains is desirable and feasible, the Council will require the development design to accommodate this objective. Where the preservation of known archaeological remains in situ is not justified, the Council will require that no development takes place on a site until archaeological investigations have been carried out by an investigating body, to be approved by the Council; such investigations shall be in accordance with a detailed scheme to be approved in writing in advance by the Council. Investigations should be undertaken by a professionally qualified archaeological o rganisation or consultant. Developers are u rged to contact at an early stage English Heritage who maintain the Sites and Monuments Record (SMR) and advise on the archaeological potential of sites both within and outside areas of archaeological priority. Further guidance will be published as Supplementary Planning Guidance Notes.

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EQ30 Areas of Special Landscape Character THE COUNCIL WILL EXPECT PROPOSALS WITHIN, ADJACENT TO OR AFFECTING THE AREAS OF SPECIAL LANDSCAPE CHARACTER SHOWN ON THE PROPOSALS MAP TO RESPECT AND ENHANCE THE UNIQUE CHARACTER OF THESE AREAS THROUGH: (A) APPROPRIATE LAYOUT, DESIGN, BOUNDARY TREATMENT AND PLANTING; (B) PROTECTION OF OPPORTUNITIES FOR ACCESS TO ASSOCIATED TOWPATHS/PUBLIC FOOTPATHS; (C) RETENTION AND ENHANCEMENT OF SPECIAL

The Council considers the Lee Valley and Regent’s Canal to be corridors of outstanding waterside and landscape character which warrant special attention in recognition of their contribution to the Borough’s overall environmental quality. New works should be designed to be in keeping with the particular character of the area and protect, and where possible create, opportunities for access. In all cases it is essential to preserve and enhance these areas and their special features which include water areas, views and vistas, mature planting, ecological areas, and items of industrial archaeological importance such as locks, railings and bollards.

FEATURES.

Trees EQ31 Trees THE COUNCIL WILL SEEK TO PROTECT AND IMPROVE THE PUBLIC AMENITY VALUE OF TREES BY: (A) MAKING TREE PRESERVATION ORDERS WHERE APPROPRIATE ON INDIVIDUAL TREES OR GROUPS OF TREES WHICH CONTRIBUTE TO THE CHARACTER OF THE AREA AND/ARE OF PUBLIC AMENITY VALUE; (B) DISCOURAGING THE REMOVAL OF MATURE HEALTHY TREES AND IMPOSING CONDITION ON PLANNING PERMISSIONS WHERE APPROPRIATE TO ENSURE PROTECTION OF TREES ON DEVELOPMENT SITES; (C) ENCOURAGING PLANTING OF TREES ON DEVELOPMENT SITES; (D) IMPLEMENTING AND ENCOURAGING OTHER PUBLIC AUTHORITIES AND PRIVATE LANDOWNERS TO IMPLEMENT NEW TREE PLANTING THROUGHOUT THE BOROUGH.


The environmental quality of Hackney depends to a great extent on the quantity and quality of its trees and landscaping; for example, trees complement buildings, are townscape features along roads and in open spaces, and form part of the ecological network harbouring bird and animal life. Controls and guidelines are necessary to preserve this resource by preventing further mutilation and felling of trees and by promoting appropriate replacement planting and adequate maintenance. Where appropriate, tree planting is encouraged as part of new development proposals provided such planting does not cause damage to underground services. Tree Preservation Orders may be made by the Council on individual trees or groups of trees, and express authorisation from the Council must be obtained before a tree with a TPO can be lopped, topped, felled or wilfully destroyed or damaged. Tree Preservation Orders will be rigorously enforced. Trees in a Conservation Area are similarly protected. 77

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Further guidance is available in Supplementary Planning Guidance Notes.

Shopfronts, Signs and Advertisements EQ32 Shop Front and Shop Signs THE COUNCIL WILL NORMALLY REQUIRE NEW SHOPFRONTS (INCLUDING INTEGRAL SHOP SIGNS) TO: (A) BE OF A HIGH STANDARD OF DESIGN AND MATERIALS AND RELATE TO THE ARCHITECTURAL COMPOSITION OF THE BUILDINGS ON WHICH THEY ARE FITTED; (B) BE IN KEEPING WITH THE SURROUNDING SCALE AND TOWNSCAPE AND ENHANCE THE STREET SCENE; (C) NOT RESULT IN THE LOSS OF A TRADITIONAL SHOP FRONT; (D) WHERE APPROPRIATE, UTILISE TRDITIONAL

Shopfronts, particularly in Hackney’s narrow streets, provide interest and detail for passersby and form an important part of the overall street scene. Through sensitive design, new shopfronts, shop signs and associated features can upgrade the shopping environment and enhance the historic and architectural quality of the street scene. The proliferation of standardised styles, aluminium shopfronts, ‘wet look’ canopies and projecting signs is considered detrimental to the majority of street scenes. Greater emphasis will be given to preservation and introduction of period shopfronts and less intrusive signs and detailing.

MATERIALS AND RETAIN EXISTING DETAILS SUCH AS PILASTERS, BRACKETS AND CORNICES; (E) ENSURE THAT ANY FASCIA OR PROJECTING

Within conservation areas new shop fronts should preserve or enhance the character or appearance of the area.

SIGNS ARE LOCATED WITHIN THE TRADITIONAL FASCIA LEVEL AND ARE APPROPRIATELY POSITIONED AND ILLUMINATED FOR THE LOCALITY; (F)

ENSURE THAT BLINDS ARE TRADITIONALLY DESIGNED AND RETRACTABLE AND THAT SHUTTERS ARE FULLY PERFORATED TO ENABLE A CLEAR VIEW OF THE SHOP WINDOW WHEN CLOSED;

Conservation Area Consent for demolition of shop fronts or parts of shop fronts which contribute towards the character and appearance of conservation areas will not, normally, be granted. Shopfronts on listed buildings should, normally, accord with the style, period, details and materials of the building.

(G) PERMIT SAFE AND CONVENIENT ACCESS FOR PEOPLE WITH DISABILITIES AND PEOPLE WITH YOUNG CHILDREN; (H) PERMIT ACCESS TO UPPER FLOORS IN ACCORDANCE WITH POLICY R15.

People with disabilities and people with young children often experience difficulty in gaining easy access to shops because of poor design. The Council is determined that such fundamental barriers to mobility should be removed when new shopfronts are installed. Note: The Council has also published Supplementary Planning Guidance Notes on these matters.

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EQ33 External Advertisements THE COUNCIL WILL NORMALLY REQUIRE ALL EXTERNAL ADVERTISEMENTS TO: (A) BE OF A HIGH STANDARD OF DESIGN; (B) RELATE ARCHITECTURALLY TO THE BUILDING ON WHICH THEY ARE FITTED; (C) BE IN KEEPING WITH THE SURROUNDING SCALE AND TOWNSCAPE AND NOT DETRACT FROM THE VISUAL AMENITY OF THE STREET SCENE;

The proliferation of advertisements and pressure to increase their size and visibility can detract from the amenity of an area. The Council will seek to ensure that advertisements do not adversely affect the architecture of building(s); avoid clutter and confusion in an already busy street scene; and do not obscure or intrude into other features in the environment such as open spaces and waterways. Bright and distracting advertisements can also endanger safety, for example, by causing confusion for drivers at traffic signals.

(D) BE DESIGNED AND LOCATED SO AS NOT TO CREATE A SAFETY HAZARD.

‘Advertisements’ means any word, letter, model, sign, placard, board, notice, device or representation, whether illuminated or not, in the nature and for the purpose of advertisement; and includes any hoarding or similar structure or any balloon used for the display of advertisements. The Council will place further restrictions on advertisements on Council-owned land requiring the content of the sign or advertisement to be in line with the Council’s Equal Opportunities Policy (prohibiting racist or sexist images being displayed). The Council will seek to reduce fly posting.

EQ34 Projecting Advertisements THE COUNCIL WILL NOT NORMALLY PERMIT PROJECTING ADVERTISEMENTS WHICH WOULD BE TO THE DETRIMENT OF THE STREET SCENE. WHERE ACCEPTABLE, SUCH ADVERTISEMENTS WILL BE LIMITED TO ONE PROJECTING

Projecting advertisements must be controlled where they are visually instrusive or create unsightly clutter or where they are otherwise unacceptable on grounds of visual amenity or public safety.

ADVERTISEMENT PER ESTABLISHMENT EXCEPT FOR VERY LARGE FRONTAGES, OR WHERE THERE IS A SIGNIFICANT RETURN FRONTAGE.


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POLICIES

JUSTIFICATION

EQ35 Illuminated Advertisements THE COUNCIL WILL NOT NORMALLY PERMIT ILLUMINATED ADVERTISEMENTS WHICH WOULD CAUSE UNDUE HARM TO THE APPEARANCE OF THE BUILDING ON WHICH THEY ARE DISPLAYED OR OF THE SURROUNDING AREA OR TO THE AMENITY OF ANY RESIDENTIAL PROPERTY.

The Council wishes to control illuminated advertisements because they can harm the appearance of buildings and disturb the amenity of residential areas, particularly in a densely developed area such as Hackney. This Policy will be applied, therefore, to commercial properties within or adjacent to primarily residential areas where there are dwellings in close proximity.

EQ36 Advertisements in Relation to Conservation Areas and Listed Buildings THE COUNCIL WILL NOT NORMALLY PERMIT INTERNALLY ILLUMINATED FASCIA, WALL, PROJECTING, NEON OR BOX ADVERTISEMENTS IN CONSERVATION AREAS AND ON/NEAR LISTED BUILDINGS, EXCEPT WHERE THEY WOULD PRESERVE OR ENHANCE THE CHARACTER OR

The Council wishes to protect the amenity, character and quality of conservation areas, statutory and locally listed buildings and London Squares, and in such areas would prefer traditional painted fascia boards, hanging signs or individually lit letters.

APPEARANCE OF THE CONSERVATION AREA; OR PRESERVE THE LISTED BUILDING AND ITS SETTING. IN SOME LOCATIONS A LOWER LEVEL OF LIGHTING SUCH AS DISCREET FLOODLIGHTING OR HALO LIT, INDIVIDUALLY MOUNTED LETTERS, MAY BE ACCEPTABLE. ILLUMINATED BOX SIGNS ARE ALSO LIKELY TO BE UNACCEPTABLE IN/NEAR OTHER SENSITIVE LOCATIONS SUCH AS OPEN SPACES, LOCALLY LISTED BUILDINGS, LONDON SQUARES AND AREAS OF SPECIAL LANDSCAPE CHARACTER.

EQ37 Advertisement Hoardings THE COUNCIL WILL NORMALLY ONLY GIVE CONSENT FOR PERMANENT OUTDOOR ADVERTISEMENT HOARDINGS WHERE THEY ARE: (A) NOT LOCATED ON EXISTING BUILDINGS OR STRUCTURES; (B) NOT WITHIN AND NOT VISIBLE FROM SENSITIVE AREAS, SUCH AS RESIDENTIAL 80

Advertisement hoardings detract from the townscape quality of the Borough and often create ‘dead’, shabby areas around them. More specifically, poorly located advertisement hoardings can be an unsightly and incongruous feature in areas where there is a unified architectural or landscape character. In most cases hoardings will not be considered London Borough of Hackney Adopted UDP – June 1995

POLICIES AREAS, OPEN SPACES, THE VICINITY OF LISTED BUILDINGS, CONSERVATION AREAS AND AREAS OF SPECIAL LANDSCAPE CHARACTER; (C) WELL DESIGNED AND LANDSCAPED TO BE IN KEEPING WITH THE SCALE, ARCHITECTURE

JUSTIFICATION

acceptable because of their adverse impact on amenity or road safety but there may be some locations where hoardings are appropriate. In particular the Council wishes to protect the amenity, character and quality of conservation areas, statutory and locally listed buildings and London squares.

AND CHARACTER OF THE SURROUNDING AREA; (D) SAFE AND APPROPRIATE IN RELATING TO THE STREET SCENE AND SURROUNDING

Where advertisement hoardings back onto a navigable waterway they should have regard to the impact of the rear elevation on the waterway and its setting.

USES.

Note: The Council will place further restrictions where hoardings on Council-owned land requiring the content of advertisements to be in line with the Council's Equal Opportunities Policy (prohibiting racist or sexist images being displayed).

Satellite and T e l e c o m m u n i c a t i o n s Equipment EQ38 Satellite and telecommunications equipment THE COUNCIL WILL NORMALLY PERMIT TELECOMMUNICATIONS DEVELOPMENTS, INCLUDING SATELLITE EQUIPMENT, PROVIDED THAT ANY APPARATUS IS, AS FAR AS PRACTICABLE, SITED SO AS TO MINIMISE ITS EFFECT ON THE APPEARANCE OF SURROUNDING AREAS. WHERE PERMISSION IS SOUGHT FOR LARGE OR PROMINENT STRUCTURES, APPLICANTS SHOULD DEMONSTRATE THAT ALL POSSIBILITIES FOR SHARING FACILITIES, USE OF OTHER STRUCTURES AND BUILDINGS AND RESITING IN LESS OBTRUSIVE LOCATIONS HAVE BEEN EXPLORED. THE PREFERRED LOCATION FOR SUCH APPARATUS IS WITHIN DEFINED EMPLOYMENT AREAS. SCREENING THROUGH LANDSCAPING OR PLANTING WILL BE REQUIRED WHERE APPROPRIATE.


The Council recognises the benefits of encouraging new forms of telecommunications equipment, and wishes to facilitate their growth. When assessing development proposals for such equipment the Council will have regard to the technical and operational requirements of the operators but will have to be satisfied that all possible means of minimising any adverse effects on the character and visual amenity of the local environment have been explored. It is particularly important that the setting, character and appearance of Listed Buildings and Conservation Areas are not adversely affected. For the siting of larger equipment operators should look to Defined Employment Areas as the area where there is likely to be the least conflict between the appearance of the apparatus and the character of the surrounding 81

POLICIES

JUSTIFICATION

area. Smaller scale installations may be easier to accommodate elsewhere, especially where screening by landscaping is possible. In certain circumstances conditions may be imposed requiring the removal of the apparatus once it is no longer required or permissions made temporary in case technological development subsequently allows the use of less prominent structures. The Council would not normally wish to restrict local residents’ access to Satellite T.V. technology however the current size of dish reception equipment can involve severe disruption to the quality of the streetscape, and therefore it is in the public interest to control the location of dishes, and regularise their positioning on terraces and large blocks. This can ensure that minimal damage is done to individual buildings, and that intrusions on the public faces of particularly cherished streets can be avoided. By recommending standard colours and positions for dishes where they will be visible, the Council can prevent the repetition of the unsightly clutter which has arisen where several different types of dish have been located along one facade, each in a different relative location to the others.

Street Furniture

A Supplementary Planning Guidance N o t e suggesting appropriate locations of satellite dishes will be prepared.

EQ39 Street Furniture THE COUNCIL WILL ENSURE THAT STREET FURNITURE AND SIGNS ARE WELL DESIGNED AND LOCATED: (A) NEW STREET LAMP STANDARDS DO NOT OVERDOMINATE THE BUILT FORM OR AREAS OF OPEN SPACE; (B)

DIRECTION SIGNS ARE WELL MAINTAINED AND MAKE SHARED USE OF STANDARDS WHERE POSSIBLE;

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The Council recognises that its own ‘minor’ activities can have a significant impact on the appreciation of the street scene and of particular Listed or publicly important buildings. Well located and designed street furniture and utilisation equipment can greatly improve the cohesion of an area and avoid detracting from the important elements of the scene such as buildings and shops, landscaping and other people. Vi s u a l l y impaired people and those pushing wide baby buggies can find great difficulty in negotiating the clutter of equipment on commercial streets, whilst for those with walking London Borough of Hackney Adopted UDP – June 1995

POLICIES (C) POSTAL POUCHES, TELEPHONE BOXES, SEATING, BOLLARDS AND OTHER FORMS OF STREET FURNITURE ARE WELL LOCATED TO CAUSE MINIMUM DISTURBANCE TO PEOPLE

JUSTIFICATION

d i fficulties the provision of ample well distributed seating can make the difference between being self sufficient or having to rely on others for assistance and mobility.

WITH VISUAL IMPAIRMENT, WHEELCHAIR USERS AND PUSHCHAIRS; (D) SEATING IS WELL DISTRIBUTED THROUGHOUT BUSY PUBLIC AREAS TO ASSIST THOSE WITH WALKING DIFFICULTIES; (E) UNSIGHTLY AND REDUNDANT STREET FURNITURE WILL BE REMOVED, WHERE APPROPRIATE, AS PART OF THE COUNCIL’S PROGRAMME OF IMPROVEMENTS ON MAIN THOROUGHFARES.

The Council will implement a phased programme of improvements to street furniture and surfacing along main thoroughfares. It is anticipated that many more recycling banks will be located within the Borough over the Plan period. This development is thoroughly endorsed by the Council; however great care will be taken in future to avoid locating them where they themselves will become an environmental eyesore, such as outside listed buildings or prominent public buildings. Council officers will work with operators to ensure that sufficient locations can be found which are both accessible and discreet.

Pollution Control EQ40 Noise Control THE COUNCIL WILL REQUIRE PROPOSALS LIKELY TO INTRODUCE A POTENTIAL NOISE NUISANCE INTO SENSITIVE AREAS OR TO INCREASE AMBIENT NOISE LEVELS OVER LARGE AREAS TO INCORPORATE APPROPRIATE MEASURES TO ENSURE THAT BACKGROUND NOISE LEVELS PERTAINING PRIOR TO THE DEVELOPMENT ARE NOT INCREASED TO AN UNACCEPTABLE DEGREE. THE COUNCIL WILL NOT PERMIT DEVELOPMENT PROPOSALS WHICH COULD LEAD TO AN

Over the past 30 years excessive noise has been recognised as a major source of environmental disturbance, and is now a matter of concern to a great many people. Noise has the capacity to irritate, annoy, interrupt sleep, increase stress, disrupt concentration and even to damage health. It a ffects everybody one way or another and whilst most people accept that some noise in a modern society is inevitable they also expect it to be mitigated wherever possible.

UNACCEPTABLE INCREASE IN NOISE LEVELS, AFFECTING EXISTING OR FUTURE OCCUPIERS OF ADJACENT PREMISES.

EQ41 Development Close to Existing Sources of Noise

The Council aims to achieve a measure of control over the noise environment at the earliest stage of potentially noisy new development, and to protect the users of development permitted near to permanent sources of noise generation.

WHERE DEVELOPMENT SENSITIVE TO NOISE IS TO BE LOCATED CLOSE TO A PERMANENT SOURCE OF NOISE GENERATION THE COUNCIL WILL REQUIRE THAT MEASURES ARE TAKEN TO MINIMISE THE EFFECTS ON FUTURE OCCUPANTS.


The Council has developed comprehensive standards which form the basis upon which planning applications for such developments will be considered. (These are published separately as Supplementary Planning Guidance). 83

POLICIES

JUSTIFICATION

EQ42 Air Pollution THE COUNCIL WILL NOT PERMIT DEVELOPMENT PROPOSALS WHICH COULD GIVE RISE TO UNACCEPTABLE LEVELS OF ATMOSPHERIC POLLUTION, INCLUDING DUST, FUMES, SMOKE,

Air-borne pollutants, including dust, fumes, smoke, gases and odours can prejudice health, adversely affect wildlife, damage vegetation and stain and corrode buildings.

GASES AND ODOURS.

Although the main legislative powers to control atmospheric emissions and nuisance from certain fixed installations lie with the Council’s Head of Environmental Health, the use of planning powers can discourage proposals for industrial processes or commercial undertakings with a significant air pollution potential. Furthermore, the major source of air pollution in Hackney is derived from the volume of transport, over which the Council has little control. The judicious use of planning powers may mitigate, prevent or contain the impact of new sources of air pollution from motor vehicles.

EQ43 Development of Contaminated Land THE COUNCIL WILL REQUIRE PROPOSALS FOR THE DEVELOPMENT OF CONTAMINATED LAND TO INCLUDE APPROPRIATE MEASURES TO PROTECT FUTURE USERS OR OCCUPIERS OF THE LAND, THE PUBLIC, NEW STRUCTURES AND SERVICES, WILDLIFE, VEGETATION, GROUND WATER AND SURFACE WATER COURSES.

Pollution from contaminated land arising from industrial processes can cause adverse health e ffects, building damage, poisoning of wildlife and contamination of ground and surface waters. It is important, therefore, that remedial treatment is taken appropriate to the nature and extent of the contamination present. Any drainage constructed in contaminated land should normally comply with Thames Water and the National River Authority’s requirements and be adequately protected so that contaminants do not enter the sewers.

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POLICIES

JUSTIFICATION

EQ44 Water Pollution THE COUNCIL WILL CONSULT WITH THE NATIONAL RIVERS AUTHORITY, THAMES WATER UTILITIES AND BRITISH WATERWAYS AND WILL NOT PERMIT DEVELOPMENT WHICH WILL LEAD TO A DETERIORATION IN THE QUALITY OF UNDERGROUND OR SURFACE WATER.

New developments, especially those in the vicinity of rivers and canals can have significant effects on the quality of surface and ground water. The Council will, therefore, seek to prevent developments which it, in consultation with the NRA, Thames Wa t e r Utilities and British Waterways considers likely to place the quality of watercourses, and underground water at risk.

Waste Management and Recycling EQ45 Waste Disposal THE COUNCIL MAY PERMIT PROPOSALS FOR WASTE DISPOSAL OPERATIONS PROVIDING THEY DO NOT HAVE AN ADVERSE EFFECT ON PUBLIC AMENITY OR SAFETY, NATURE CONSERVATION OR THE LOCAL ENVIRONMENT, SUBJECT TO OTHER POLICIES IN THE PLAN.

All of the domestic, and the vast majority of the commercial waste generated in Hackney, is disposed of at the incinerator at Edmonton where it helps to generate electricity for the national grid. There are no suitable sites available for a waste transfer station in Hackney. There is a site nearby in Waltham Forest. The waste disposal operations that do exist in Hackney are small scale ones involved with the private sector disposal of building or construction site waste. Policy EQ47 together with Policy EQ1 provides guidance on the factors that the Council will take into account in its assessment of such proposals. The potential amenity, safety, nature conservation and local environmental impact of any proposed waste disposal operations will requre very careful consideration. The Council will take into account National Policy on waste and recycling set out in “This Common Inheritance,” SERPLAN’s “Guidelines for Waste Disposal Planning in the South East,” and the policies of the London Waste Regulation Authority, and North London Waste Authority when considering proposals involving waste disposal.


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POLICIES

JUSTIFICATION

EQ46 Recycling Facilities THE COUNCIL WILL ENCOURAGE AND SUPPORT PROPOSALS FOR BOTTLE BANKS, PAPER COLLECTION POINTS, RECYCLING CENTRES AND CIVIC AMENTIY SITES SUBJECT TO: (A) SATISFACTORY LOCATION RELATIVE TO OTHER RECYCLING FACILITES; (B) SATISFACTORY ACCESSIBILITY TO LOCAL RESIDENTS, INCLUDING BY PUBLIC TRANSPORT, CYCLE AND ON FOOT; (C) SATISFACTORY STANDARDS OF DETAILED DESIGN, LAYOUT AND ACCESS; (D) THERE BEING NO UNACCEPTABLE EFFECTS

The Environmental Protection Act 1990 requires the Council to prepare a reycling plan based on a survey of present and proposed practice in the Borough. In the White Paper ‘This Common Inheritance’, the Government has set a national target for the year 2000 to recycle 25% of all household waste in the Country. Local recycling facilities will play an important role in meeting these objectives. The Council’s waste management programme encourages recycling together with waste minimisation and re-use and repair, as part of a strategy which aims to reduce the amount of waste requiring final disposal.

UPON NEIGHBOURING USES AND THE ENVIRONMENT OF THE SURROUNDING AREA IN TERMS OF APPEARANCE, NOISE AND DISTURBANCE; (E) ADEQUATE ACCESS AND PARKING FOR CARBORNE USERS WITHOUT CAUSING UNACCEPTABLE DANGER AND DELAY TO OTHER ROAD USERS. THE COUNCIL WILL ENCOURAGE PROVISION OF RECYCLING FACILITES AS PART OF NEW DEVELOPMENT PROPOSALS, OF A TYPE AND SCALE COMMENSURATE WITH THE DEVELOPMENT AS A WHOLE.

Renewable Energy EQ47 Renewable Energy THE COUNCIL WILL NORMALLY PERMIT PROPOSALS TO HARNESS RENEWABLE ENERGY PROVIDING THEY WOULD NOT CAUSE UNACCEPTABLE ENVIRONMENTAL OR VISUAL INTRUSTION.

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Renewable energy resources can usually only be developed where they occur. Thus there are limited opportunities for large scale renewable energy schemes in Hackney. The technology most likely to be exploited is solar panels on individual buildings. Proposals for such should accord with Policies on new development/alterations and stricter controls would apply in conservation areas and in relation to listed buildings, (Policies EQ1, EQ5, EQ14 and EQ17 being most relevant).


POLICIES

JUSTIFICATION

Waste combustion and bio-gas technologies are examples of renewable energy sources which may be a possibility for exploitation on a commercial basis or in conjunction with combined heat and power schemes. For such larger scale proposals Policy E18 is likely to be most applicable.

Designing Out Crime EQ48 Designing Out Crime THE COUNCIL WILL NORMALLY SEEK TO ENSURE THAT NEW DEVELOPMENTS CREATE ENVIRONMENTS THAT DISCOURAGE CRIME AND FEAR OF CRIME IN BOTH THEIR OVERALL LAYOUT AND THEIR DETAILED DESIGN.

The physical environment of an area appears to be one factor in determining the level of crime as well as the fear of crime. As well as allowing opportunities for crime, poor design can create fear amongst particular groups such as women and the elderly. Crime prevention is capable of being a material consideration when plannning applications are being decided (Circular 5/94). Proposed development or redevelopments in the Borough should have regard to ‘design out crime’ in their layout by, for instance, creating adequate, public frontage blocks, with private and secure areas to the rear, providing secure entry points and good lighting. The Council will not encourage, however, developments that engender an isolated, fortress mentality. Security measures should not be unsightly or overdominant. Defensible space is important but must not be isolating. In particular, adopting a series of cul-de-sacs rather than a limited but permeable network or routes will be unwelcome, a feeling of security needs to be created by busy, active and overlooked streets.


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Area at risk from flooding Proposal 45

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Chapter 3

Housing INTRODUCTION

Conversion

STRATEGIC POLICIES

HO12 HO13

NATIONAL POLICY CONTEXT REGIONAL POLICY CONTEXT METROPOLITAN POLICY CONTEXT LOCAL POLICY CONTEXT New Development HO1 HO2 HO3

Provision of Additional Housing New Housing Sites Other Sites for Housing

Conversions Conversions within Original Envelope

Houses in Multiple Occupation and Hostels HO14 HO15

Houses in Multiple Occupation Residential Hostels

Housing for People with Disabilities, Residential Accommodation for Care, Sites for Travellers HO16 HO17 HO18

Housing for People with Disabilities Residential Accommodation for Care Sites for Travellers

Safety and Accessibility

Improvement of Housing

HO19

HO4 HO5 HO6

Housing Standards

Improvement of Older Housing Estate Improvement Residential use of Upper Floors above Shop Units

HO20

Safety and Accessibility

Planning Standards

Loss of Housing HO7 HO8 HO9 HO10 HO11

Redevelopment of Housing Loss of Housing Requirements of New Housing Requirements of Large Housing Sites New Residential Development on Sites with Constrained Street Frontages


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ST21

Introduction

THE COUNCIL WILL SEEK THE PROVISION OF A RANGE OF DWELLING SIZES AND TYPES IN NEW

1.

This Chapter outlines the basic housing requirements and needs of the Borough’s residents and proposes policies to provide the requisite number of new homes necessary to meet both specific pressing local needs and to make a contribution towards general London and regional housing provision.

DEVELOPMENTS AND CONVERSIONS, TO SATISFY A WIDE RANGE OF HOUSING NEEDS INCLUDING ‘PRIORITY’ AND ‘SPECIAL NEEDS’, AND HOUSING DEMAND.

ST22 THE COUNCIL WILL NORMALLY RESIST THE LOSS OF HOUSING THROUGH CHANGES OF USE AND

2.

3.

The Council strongly believes that all Borough residents should have satisfactory and affordable accommodation suitable for their needs, irrespective of their income. The Council recognises that the achievement of this objective will require a comprehensive programme of land use, planning and other measures and, in particular, very substantial financial resources, (further details of which are published in the Council’s annual Housing Investment Programme and Strategy).

REDEVELOPMENT.

ST23 THE COUNCIL WILL SEEK TO INCREASE THE STOCK OF AFFORDABLE HOUSING IN THE BOROUGH.

Justification 4.

The Council has been requested by the Secretary of State to make suf f i c i e n t provision in this Plan for an additional 6,000 dwellings during the period 19872001. This represents the Borough’s contribution to the 260,000 new homes that London is expected to provide. This will contribute to the additional 570,000 dwellings SERPLAN estimated as necessary to meet anticipated demand for new housing in the South East region during this period.

5.

The attainment of this target allocation will, in part, depend on a general presumption in this Plan against any net loss of existing housing through change of use or redevelopment.

6.

The Council recognises that the mere provision of additional dwellings to meet market demand may not satisfy the pressing needs of many Borough residents and, in particular, those households whose demographic needs and/or restricted incomes do not permit them the opportunity of securing adequate accommodation on the open

This Plan contains policies dealing with the land use and planning aspects of these issues. It includes the detailed development control and implementation policies by which the Council will seek to control housing provision in order to ensure compliance and fit with strategic objectives as outlined in the Council's Strategic Housing Policies.

Strategic Policies ST20 THE COUNCIL WILL SEEK TO MEET LOCAL AND STRATEGIC HOUSING NEEDS BY ENSURING THE PROVISION OF HOUSING LAND, AND BUILDINGS SUITABLE FOR CONVERSION, SUFFICIENT TO ALLOW FOR AN ADDITIONAL 6,000 DWELLINGS BETWEEN 1987 AND 2001. London Borough of Hackney Adopted UDP – June 1995

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housing market. The Council will therefore seek a substantial increase in the stock of affordable housing and the provision of the range of housing necessary to satisfy demographic and tenurial requirements. 7.

These strategic housing policies have been formulated, in accordance with national, regional and metropolitan policy guidance and advice, to address the Borough’s housing needs as outlined in the following paragraphs. This is further elaborated in the individual justifications of the specific policies.

National Policy Context 8.

Central Government housing legislation and policy currently emphasise a marketled housing provision strategy focussed on increasing home ownership, while recognising the complementary need to substantially increase the availability of rental accommodation and thereby stem its decades of long sectoral decline.

9.

Under this strategy the housing associations and other similar providers have assumed the traditional primary social housing provision role of the local authorities, although without the former level of public sector funding. The residual role of the local authorities has been reduced to an ‘enabling’ function, including the facilitation of partnership arrangements with the private sector.

10. The role of the local planning authority in implementing this strategy is outlined in various legislation, circulars and advice and in particular, DoE Circulars 57/78; 8/81 and Planning Policy Guidance Notes 3 and 12. (PPG3, PPG12). 11. Both of these PPGs emphasise the role of the local planning authority and its development plan in ensuring the 92

effective use of urban land by allocating sufficient land for housing development within the context of maintaining the character and amenities of existing residential areas. PPG3, in particular, encourages local planning authorities to provide detailed housing provision and development control policies appropriate to local needs and requirements, including low cost and af f o r d a b l e housing; “A Community’s need for af f o r d able housing is a material planning consideration which may properly be taken into account in formulating Local Plan Policies”. The Council has also been enjoined by PPG3 to demonstrate the extent to which the local housing market is beyond the affordability of many Borough residents, in order to substantiate its land use and planning policies to encourage and provide a range of housing types and tenures appropriate to its residents’ needs and, in particular, affordability.

Regional Policy Context 12. Regional Planning Guidance For The South East (RPG9) emphasises the maximum effective use of existing urban land to provide new build dwellings and the complementary rehabilitation and refurbishment of the existing dwelling stock to provide the requisite regional housing needs in accordance with demographic changes and lifestyles. 13. SERPLAN, in addition to concurring with the above guidance, stresses the importance of local planning policies in enabling the provision of social and a ffordable housing as an integral component of regional economic development and local regeneration strategies. (“Shaping The South East: A New Planning Strategy”) London Borough of Hackney Adopted UDP – June 1995

Fi g. 1 Hackney’ s dw el l i ng st ock (%)

Fi g. 2 Age of Hackney’ s dw el l i ng st ock by t enur e (%)


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Metropolitan Policy Context Strategic Planning Guidance 14. Strategic Planning Guidance For London (1989) considers that the Metropolitan area should provide an additional 260,000 dwellings between 1987-2001 of which 6,000 units should be provided in H a c k n e y. In addition to enabling the attainment of this target allocation, local planning authorities are also advised as to the importance of ensuring appropriate levels of affordable housing for low and middle income groups and special needs housing, such as housing for people with disabilities. 15. New build housing and the conversion of existing dwellings are required to respect the existing townscape character and residential amenities. Objectives, which in the opinion of Strategic Guidance, can be most effectively achieved through appropriate local planning policies on such issues as conversion capacity; residential densities and parking requirements etc. Strategic Planning Advice 16. Strategic Planning Advice For London addresses the specific housing requirements of particular sectors of L o n d o n ’s population, including low income groups, among whom black and ethnic minorities and women are disproportionately over - r e p r e s e n t e d . Boroughs are exhorted to meet these social housing needs by ensuring that at least twenty five percent of units in large new developments provide aff o r d a b l e accommodation.

Local Policy Context 17. The overall housing situation in Hackney has changed little, if at all, since 94

the Borough was identified as a ‘major housing problem area’ in the ‘Greater London Development Plan’ (1976); a residential deprivation status subsequently reiterated by its classification as a ‘housing stress borough’ in the proposed Alterations to the GLDP (1986). Hackney has also been identified as the second worst borough in London in terms of its overall housing stock condition (SERPLAN “Housing Conditions and Renovation of the Dwelling Stock in the South East Region”) 18. The following description and analysis of the current status of Hackney’s dwelling stock, housing needs and potential new provision is broadly based on the criteria and suggested methodology advocated in the DOE’s Housing Strategies Manual. Borough Dwelling Stock 19. On paper the Borough has approximately 81,000 dwellings, mostly flats, to house its 192,000 residents, living in almost 83,000 individual households (Fig. 1). Many of these dwellings are, however, in a very poor structural condition, affording substandard and unsatisfactory amenities, to such an extent that a substantial number are not available for residential use. Therefore, the real shortage of usable dwellings is substantially greater than the crude difference between households and dwellings and has been estimated by the Council as representing an eff e c t i v e dwelling deficit of 5220 homes, a current shortage equivalent to almost half of the additional dwellings required simply to meet the forecast household growth in the next decade (“Household Projections, DoE, 1995”). 20. The majority of the Borough housing stock was constructed before 1939, with over a third built before 1919, and is therefore subject to all the structural problems associated with old age, unalleviated by major refurbishment. This is particularly so in the private sector London Borough of Hackney Adopted UDP – June 1995

Fi g. 3 Homel essness i n Hackney and London

Fi g. 4 Housi ng t enur e i n Hackney 50% 40%

30%

20%

10%


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where three quarters of its dwellings were built before 1919 (Fig. 2). Over half of all the Borough’s private sector dwellings are classified as either unfit, lacking in basic amenities or in need of substantial repair. 21. Hackney has the highest proportion of private dwellings ‘unfit for habitation’ in London (18.4%); a figure which is almost double the average for Inner London. Poor housing standards in a Borough with the highest proportion of residents suffering a long term limiting illness is a particular concern in view of the manifest relationship between housing and health (“Housing, Homeless and Health”, Royal College of Physicians, 1994). 22. Repairing and refurbishing these older buildings to meet current standards and replacing poorly constructed post 1945 ‘system built’ estates would probably require an expenditure not far short of one billion pounds. The Council as a major landlord itself, appreciates the financial difficulties that inhibit bringing back into active residential use many vacant properties in both the public and private sector. 23. Through its Private Sector Strategy, the Council is endeavouring to eff e c t i v e l y target its available Housing Renovation Grants, but the scale of the problem can be seen from the estimate that it will take another eighteen years, at present annual grant making levels, to bring all of the private sector dwellings up to current fitness/repair standards. A particular problem arises from the inability of elderly owner occupiers to fund necessary repairs and so the Council actively encourages the involvement of specialist agencies, such as its own Home Improvement Agency in partnership with housing associations, to undertake ‘care and repair’ schemes. 24 The Council must however express its concern that almost 3,000 private dwellings have been assessed as liable 96

to the imposition of the Standard Community Charge, that is premises deemed fit for residential use but which are vacant and could be used to house homeless persons. Bringing such properties back into productive use and targeting resources to areas and dwellings which are particularly substandard are key objectives of the Council’s Private Sector Housing Strategy. Housing Need 25. Since 1985 homelessness in Hackney has almost tripled; increasing at a rate far in excess of both the national and London levels (Fig. 3), with over 2,500 households accepted by the Council as statutorily homeless and in priority need in 1994. Large as it may seem this figure excludes many other homeless persons (almost 2,000 in 1994) such as single people and couples without children for whom the Council has no statutory housing obligation. Black and ethnic minorities are dis-proportionately over-represented in both categories of homelessness. 26. The Council’s ability to satisfy its statutory obligations of providing housing for these households has been far outstripped by the rate of homelessness increase, with the Council increasingly dependent on nominations to the housing associations to provide housing rather than its own dwelling stock. 27. Providing temporary accommodation for almost 5,000 homeless households has, in addition to imposing a very substantial financial burden on the Council at an average annual cost of £20,000 for a household in Bed and Breakfast accommodation and £10,500 in a leased property, required the short term leasing of many properties far beyond the Borough’s boundaries, in order to minimise the number of persons, and particularly children, forced to live for months and sometimes years in totally unsatisfactory ‘bed and breakfast’ type accommodation. London Borough of Hackney Adopted UDP – June 1995

Fi g. 5 Counci l dw el l i ng st ock

1- 2 St or ey

House

3- 5 St or ey

6- 9 St or ey

10 St or ey

Flat s/ Maisonet t es

(b) Dw el l i ng t ype by number of bedr ooms (%)

One Bed House

One Bed Flat


Tw o Bed House

Tw o Bed Flat

Thr ee Bed House

Thr ee Bed Flat

Four Bed House

Four Bed Flat

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28. The Borough experiences particular problems in trying to provide permanent housing for larger families. Eight-five percent of homeless households require accommodation with two or more bedrooms but only 45% of the Council’s own dwellings becoming available for letting are in this category. The problem of rehousing larger families is particularly acute and it is not uncommon for a family requiring a four bedroom dwelling to wait several years for permanent accommodation of this size. 29. As a result of its statutory obligation to prioritise housing for homeless families and those decanted to enable major refurbishment and redevelopment schemes the Council has in recent years been unable to provide housing for more than a small proportion of the nearly 5000 households registered on the Borough’s Housing Waiting List. 30. Virtually all of the households registered on the Council’s Waiting List are currently living in either substandard or overcrowded conditions. Overcrowding is a particular problem in Hackney which is rated one of the most overcrowded boroughs in London with almost 4000 households living at a level of more than one person per room, and a further 2000 at more than 1.5 persons per room, according to the Census. But the more comprehensive assessment employed by the Hackney Housing Survey estimates that nearly 7000 households are living in accommodation too small to meet their needs. 31. The current usable Borough dwelling stock provides accommodation, albeit, often unsatisfactorily, far below the level required to meet the acute housing needs. Unfortunately the prospects of significantly improving the quality of existing dwellings and enhancing residents accessibility to af f o r d a b l e accommodation during the envisaged life time of this Plan will remain bleak 98

without a substantial injection of additional funding. In this context it should be noted that the level of capital funding which the Government has permitted the Council, has in recent years, been very substantially less than it was before the Council was compelled by the Government to take over the additional responsibility of former GLC dwellings, which more than doubled the size of the Council’s dwelling stock. 32. The Council recognises that even with additional Government funding, enabling and facilitative legislation changes and enhanced Housing Corporation allocations, the Borough would still require significant increased private sector investment to improve its existing dwelling stock and to provide much needed additional housing in accordance with the needs of Borough residents and the Government’s policy objective of tenurial diversification. Housing Tenure 33. The Council has for many years been the primary housing provider for Borough residents and even today the Council directly provides accommodation for over half of the Borough households (Fig. 4). But over 90% of the Council’s dwelling stock is comprised of flats and maisonettes, most of which are located in either ‘between-the-wars’ low and medium rise or post 1945 high rise blocks, with minimal external amenity facilities and often in need of major refurbishment (Fig. 5). 34. The Council's already small stock of street houses with gardens has been further steadily eroded through former tenants exercising their ‘right to buy’. As a result of Central Government’s increasingly stringent financial and legislative restrictions the Council has not been able to use most of the receipts obtained from the sale of these dwellings for the purpose of either building new homes for rent or alternatively repairing London Borough of Hackney Adopted UDP – June 1995

Fi g. 6 Counci l housi ng capi t al expendi t ur e 1 9 8 7 - 1 9 9 5

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and refurbishing its existing 11 , 0 0 0 dwellings in need of major repairs and refurbishment. 35. The Council estimates that this refurbishment programme alone would require an expenditure of over half a billion pounds. A funding requirement far beyond the resources available to the Council during the last decade, even though the Council has spent over 70% of its total capital programme in recent years on housing (Fig. 6). The Council has therefore recently enabled, through its Hackney Estates Regeneration Strategy, a series of partnerships with the private sector and housing associations to significantly improve the dwelling stock on some of its oldest estates. 36. The scale and nature of the problems posed by ‘large panel, system built’ estates have necessitated an even more radical approach by the Council extending far beyond the traditional Estate Action programme parameters. Under the Comprehensive Estates Initiative programme the council is undertaking in partnership with the private sector and the housing associations the comprehensive redevelopment of five major estates, replacing high rise flats with traditional houses and gardens at a total estimated cost of over £260 million. In addition to providing much needed new and refurbished homes, the CEI programme also aims to provide training and employment opportunities for some of the Borough’s most deprived communities. 37. Both of these partnership programmes essentially involve the disposal of Council assets, dwelling stock and land, at very much reduced prices in return for nomination rights and subsidised new social housing. A policy which has been pursued by the Council for nearly two decades, commencing with the disposal of individual houses, for refurbishment by housing associations and culminating 100

in the Hackney Housing Partnership (1992-95); a joint venture in which the Council disposed of 34 sites and 223 properties, with a total value of over £20 million, to a consortium of 17 housing associations who provided 1,036 new and refurbished homes for rent and a further 170 units for shared ownership. As a result of such innovative partnership programmes the Borough has been consistently awarded some of the Housing Corporation’s highest grant and subsidy allocations in recent years. 38. While recognising and appreciating the contribution the Housing Corporation has made in funding these programmes, the Council must express its concern that the G o v e r n m e n t ’s determination to force housing associations to seek an ever greater proportion of their funding needs from private financiers, rather than the Housing Corporation, must inevitably endanger the housing associations’ ability to provide affordable housing owing to the rent levels required to service commercial borrowing. The Council is particularly concerned that it has experienced great difficulty in identifying nominees who can afford to meet the over £100 a week rents for new housing association dwellings unable to secure any public funding or subsidy. 39. The Council is further concerned that the Housing Corporation’s new policy of considering all forms of ‘public subsidy’, when assessing proposed schemes on a ‘value for money’ basis, will effectively prevent any significant repetition of the nil or minimal assets disposal package that made possible the Hackney Housing Partnership. Over-emphasis by the Housing Corporation on such crude indicators as ‘cost thresholds’ and ‘bed space cost’ also, in the opinion of the Council, seriously jeopardise the ability of housing associations to provide much needed larger dwellings and undertake major new build and refurbishment schemes, requiring significant residential amenity provision and enhancement. London Borough of Hackney Adopted UDP – June 1995

40. Over a tenth of all Borough households rent their accommodation from the fifty or so locally based housing associations, whose dwelling stock varies in size from several thousand to a handful of houses. Most of these housing association units are either refurbished and converted, or new built premises, but approximately 2,000 flats are located in several l a rge late 19th and early 20th century high density estates, which require major refurbishment or redevelopment to bring them up to a satisfactory standard of amenity provision. 41. The last decade has also witnessed an increasing involvement in the Borough by black and ethnic minority housing associations, whose initial small scale, predominantly refurbishment schemes, have now expanded, with the active encouragement of the Council, to membership in some of the largest new build social housing consortia in the country. 42. The Borough also has a network of housing associations and cooperatives catering for persons, including nonfamily households, women and gays and lesbians who, although in considerable housing need, do not, on account of their circumstances, represent a statutory obligation for the Council. Notwithstanding this, the Council has endeavoured, whenever possible, to make available premises suitable for short term usage by these social housing providers. The Council is also particularly interested in encouraging the development of ‘foyers’ which combine on site training and accommodation, especially for young people. 43. The remaining sector of the rental market, accommodation provided by private landlords, has been steadily eroded in the course of the last decade from providing housing for almost a fifth of the Borough households in 1981 to only a seventh today; a proportion substantially below London Borough of Hackney Adopted UDP – June 1995

that found in most Inner London boroughs (Fig.7). Most of these dwellings provide furnished, rather than unfurnished accommodation, and are increasingly let on short term tenancies. 44. The loss of non-self contained bedsit-type accommodation, providing relatively affordable housing for single persons and non-families with low incomes, has been particularly serious in the last decade during which the Borough’s stock of houses in multiple occupation (HMO) has been at least halved to less than 4,000 today. 45. Much of the Borough’s worst housing conditions are to be found in its HMOs, 90% of which were built prior to 1919, with over 40% designated as ‘unfit’ (see LPA C ’s “Houses in Multiple Occupation”, 1994 for a general review of these problems). Improving the HMO dwelling stock is a key objective of the C o u n c i l ’s Private Sector Housing S t r a t e g y, which includes a HMO Registration Scheme, which aims to bring all registered HMOs up to an appropriate condition and level of amenity provision (initially in the Brownswood Ward). 46. Despite Central Government’s stated intentions to revive the declining private rental sector, there is, as yet, little evidence that their combination of legislative and fiscal enabling policies have generated either any substantial new rental accommodation in the Borough, or the likelihood of doing so in the future over any sustained period of time, and certainly not at rental levels affordable to most Borough residents in housing need. 47. Much of the new supply of private rental accommodation, at rents far in excess of many Borough residents, would seem to be the result of the downturn in house purchase. The Council has itself, for example, been able to avail of this opportunity by renting several thousand dwellings for the temporary 101

accommodation of its homeless residents. Changes in Government policies have, h o w e v e r, substantially reduced the C o u n c i l ’s ability to lease this type of accommodation. 48. The growth in the owner occupation sector in recent years to its present level of providing accommodation for 27% of all Borough households (only 17% in 1981) has been substantially achieved through the conversion of rental dwellings, so that today only one third of the Borough’s private sector dwellings are available for rent (Fig. 8). 49. While the Council is concerned by the loss of affordable rental accommodation through conversions, it actively seeks to promote home ownership in a Borough with one of the lowest rates of owner occupation in London, especially in terms of outright ownership (5.6%). The Council is particularly interested in promoting low cost housing for sale at prices which are affordable by Hackney residents. Shared ownership (part purchase/part rent), in particular, o ffers the opportunity of substantially widening the traditional access route to owner occupation. As a result of the Council’s enabling policies almost two hundred dwellings of this type have been built in the last seven years, with a further three hundred units in the pipeline. 50. The Council also encourages its own tenants and those of the housing associations to become owner occupiers by availing of the various financial incentive tenancy relinquishing schemes. Self Build housing schemes, which offer potential owner occupiers with low incomes, and often limited opportunities for access to social housing, the opportunity of utilising their ‘sweat equity’, are also actively encouraged by the Council. 102

New Housing Provision 51. Housing the Borough’s population currently occupies almost 40% of Hackney’s total land area, making it by far the largest single land use in the Borough. This proportion has changed only marginally in recent decades and the scope for further significant new land allocations for housing development, in an already densely populated inner city Borough, must be clearly limited. And particularly so when land for new housing must compete with other equally pressing demands for land for new employment, community facilities and other needs. Notwithstanding this, the Plan has identified sites capable of providing over one thousand new dwellings; and these together with ‘wind fall sites’ should be sufficient to meet likely new build housing activity rates during the envisaged life span of this Plan. 52. As a result of the steady erosion of new build residential land opportunities the pattern of new housing provision in the Borough increasingly shifted towards the subdivision and conversion of existing, mainly residential, premises in the course of the last decade, almost doubling the number of converted dwellings which now represent about 17% of the Borough’s housing stock. 53. The Council recognises that conversion and refurbishment schemes can play a very important and necessary role in both rehabilitating an elderly housing stock and in providing much needed new accommodation. Notwithstanding this, the scale of conversion activity in the Borough reached such a level that the Council, in common with many other inner city local planning authorities, was obliged to control aspects of conversion schemes in the interests of maintaining the amenities of its residents. [“Houses Into Flats:” (DOE, 1992) documents the many problems conversions can generate.] London Borough of Hackney Adopted UDP – June 1995

54. Unrestricted conversion activity, subject only to the imprecise controls of the housing market, can also lead to an unbalanced dwelling stock out of tune with the Borough’s demographic needs. This is a particular problem in Hackney which, as a result of its significantly greater average household sizes and households with young children than most Inner London boroughs, has a very substantial demographic requirement for family sized accommodation. 55. Prior to 1985, when the Council introduced restrictive conversion development control policies, no less than 92% of all new conversion units were one or two bedroom flats as opposed to an average of 70% in recent years. The substantially increased number of units of three or more bedrooms, in addition to providing much needed family accommodation, has also, by reducing the number of units in each conversion, substantially lessened the detrimental environmental consequences that may stem from overdevelopment. Access to Affordable Housing 56. For many Borough residents who do not already own, or are purchasing their homes, the prospects of becoming owner occupiers, whether through outright or deferred purchase, are extremely bleak even when property prices are relatively low in overall London terms, or are substantially discounted as in the case of the local authority ‘right to buy scheme’. Over the decade since the introduction of this scheme the proportion of Hackney tenants who have done so (equivalent to only 14% of the Council’s dwelling stock in 1980) has been among the lowest in London. 57. Any further significant expansion is likely to be restricted by the reality that over half of the Council’s tenants are dependent on housing benefits to pay their rents and therefore would be unable to participate even in the London Borough of Hackney Adopted UDP – June 1995

‘rents to mortgage’ scheme. In these circumstances, and within the context of the reality that over 75% of all Council tenants have been in this tenurial status for at least five years, and are therefore much less mobile than most of those in other tenurial sectors, it is readily apparent that any prospects of substantial further tenurial diversification would seem rather unrealistic. 58. The Council is extremely concerned that many Borough residents and, in particular, those in greatest housing need are being increasingly ‘priced out’ of the local housing market as a result of purchase prices and rents far beyond their affordability. The Council has therefore regarded the complementary issues of access and affordability as key issues of concern for its Unitary Development Plan and has accordingly formulated policies to enable better access to more affordable accommodation. 59. The complex relationship between access and af f o r d a b i l i t y, together with their associated multiplicity of definitions, has been exhaustively explored by SERPLAN who have diff e r e n t i a t e d between ‘primary’ and ‘secondary’ housing need (“Access to Af f o r d a b l e Housing In The South East Region”, 1990). ‘Primary’ housing need stems from access restricted to the housing market largely by insufficient income and little expectation of income increasing to a level commensurate with local housing market prices and rents. Whereas ‘secondary’ housing need is the product of local access problems: usually due to an insufficient supply of the preferred type of dwelling to meet local housing market demand; and/or temporary fiscal pressures e.g. a mortgage rate increase. 60. The local planning authority’s role in alleviating ‘secondary’ housing need is therefore largely confined to ensuring that sufficient land and premises are available to supply the local housing market 103

demand and regulating such development to ensure that a reasonably balanced dwelling stock is provided to satisfy local demographic household requirements. The Council has therefore provided a number of policies in this Plan to ensure that sufficient land and premises are available to satisfy local market demand and to control development to ensure that new dwelling provision properly reflects the demographic requirements of Borough residents. 61. In endeavouring to enable provision for those in ‘primary’ housing need the Council recognises the existence of a substantial category, a ‘housing under class’, effectively excluded from the local housing market; whose housing provision is therefore dependent on non-market or ‘social housing’ providers, such as the local authority, housing associations, charitable institutions, and the private sector assisted by subsidies to make up the deficit between market provision cost, and purchase price or rental income. 62. The economic structure of the local housing market and the corresponding extent of the numbers of residents effectively ‘priced out’ of it on account of insufficient income can be ascertained by employing a number of sources, providing information as to housing purchase price and rents, together with the income levels of Borough residents, thereby indicating the magnitude of the affordability problem confronting the Borough. 63. Housing purchase prices in London are regularly monitored by the London Research Centre on behalf of all London boroughs. According to their survey, the average price of dwellings purchased in the Borough in late 1994 was £74,000, (covering a bedroom size band from £45,800 for one bedroom to £110,700 for a four bedroom dwelling), making Hackney the least expensive housing purchase market in Inner North London (Quarterly Bulletin No. 32). 104

64. Aware that the LRC survey might be criticised for its overdependence on information supplied by a particular building society, the Council therefore undertook in 1994 its own analysis of the local housing market, based on a detailed survey of local estate agents. While this survey did find that locally advertised properties, particularly, at the lower bedroom number level were normally less expensive (£42,700 for a one bedroom flat) than the sample in the LRC survey. The real effect of this differential was substantially reduced by the clear evidence that many of these ‘cheaper’ properties required substantial repair work, or were former right to buy estate dwellings - which in some cases had made them effectively un-mortgageable thereby significantly reducing their potential attraction to low income purchasers dependent on standard mortgages. 65. Current house sale prices may of course not totally reflect the entire housing market as they are dependent on property becoming available which may not accurately correspond to the overall type of dwellings potentially available for future sale. 66. An alternative means of establishing the market value of the Borough’s dwelling stock may be inferred, while making due allowance for its rather arbitrary m e t h o d o l o g y, from the value bands adopted for Council Tax assessment purposes. According to this assessment, 40.5% of Borough dwellings have a valuation of under £52,000; almost three quarter of all dwellings are valued at less than the base valuation level of Band D (£68 - 88,000); while only 5% have a valuation of over £120,000. These valuations broadly confirm current house price analysis that Hackney housing purchase costs are relatively low in comparison to many other London boroughs and, in particular, those located within an equivalent distance to the London Borough of Hackney Adopted UDP – June 1995

central administration, business and retail metropolitan zones. 67. Private sector rental costs tend to reflect the cost of original housing construction, in the case of recently built dwellings, and the imputed value or envisaged sale price of older units. The LRC regularly monitor London boroughs new private lettings costs. According to their most recent survey the average weekly rent for a Hackney ‘bedsit’ was £54 with flats and houses, ranging from £110 for a one bedroom apartment to £173 for a three bedroom dwelling, rising to a rental of £243 for, the very short supply, four and more bedroom units (“Private Rents Bulletin No. 8,” 1995). Once again these rental costs compare favourably with other boroughs when allowance is made for Hackney’s proximity to the centre of London. 68. That these private rental costs are very clearly far in excess of the ‘social housing’ costs of accommodation provided by housing associations and the local authority can be seen from the fact that the average private rent is no less than three times greater than the average housing association rent; which itself is higher than the local authority rent. Average Council rents are approximately £45 a week, with almost none of the cost spread for larger dwellings found in the private sector. Yet over half of all Council tenants (58%) cannot afford their rents without the financial assistance of housing benefit. Even higher dependency levels are to be found in the housing association and private rental sectors. 69. This dependency on housing benefit, income support and other state benefits (43% of Hackney households have no earned income), together with the relatively low incomes of those in employment (two thirds of the Borough’s households have a gross income of under £10,000), strongly, if crudely, suggests that well over a third of all Borough London Borough of Hackney Adopted UDP – June 1995

households had in 1992 an income insufficient to afford a weekly housing cost of £32 – approximately half the cost of a new letting ‘studio’ apartment – without housing benefit (Table 1). By inference these households would be unable to fund alternative private sector accommodation from their own resources without financial assistance. 70. Persons dependent on housing benefit and income support are unable to obtain equivalent financial assistance to become owner occupiers while housing benefit is in practice often of little assistance to new entrants to the housing market on account of overt discrimination by landlords who, even if they are prepared to accept such prospective tenants, without the normal sizeable deposit, are often deterred by the prospect of delayed benefit payment. 71. Access to the housing market in Hackney is therefore substantially governed by income considerations and, conversely, the propensity to homelessness, and therefore dependency on social housing providers, very significantly correlates to lack of income; over 70% of the households accepted as statutorily homeless in 1993 had no earned income and less than a tenth had a net annual earned income of more than £10,000. In addition to having the highest unemployment rate in London, Hackney also has the highest proportion of one parent families and residents suff e r i n g from a long term illness or disability in London. All of which categories tend, by virtue of their low incomes and benefit dependency, to be excluded not just from the owner occupation sector, but all but the most cheapest, and basic, sector of the private rental market (LRC, “Housing Needs in London”, 1995). 72. Potential access to owner occupation is also further constrained by the lack of ability to fund the requisite mortgage deposit; 73% of Hackney tenants had less than £3,000 savings in 1992, which 105

would customarily generate a potential mortgage of only some £30,000 insufficient to buy virtually any dwelling in the Borough, even assuming that such tenants were in employment and not reliant on housing benefit. 73. The potential number of Hackney tenants in employment, and not dependent on housing benefit, who could therefore even realistically aspire to ‘market cost’ owner occupation may be assessed by considering only those residents who had gross household incomes greater than £13,000 in 1992; representing substantially less than a third of all households. On this basis only 14% of Council tenants, 25% of housing association and 20% of private tenants could realistically aspire to outright home ownership, mostly the cheaper and smaller dwellings. 74. Family households would clearly have required incomes very substantially in excess of £13,000 to have purchased accommodation to satisfy their demographic requirements. Hackney, as already noted, has substantially larg e r family sizes than most other boroughs and this is particularly true of the Borough’s ethnic minority communities who also tend to have disproportionately lower incomes. Most of Hackney’s one parent household heads - the highest proportion in London - are women, who also tend to have disproportionately lower incomes. Households of these types and sizes are therefore substantially dependent on social housing tenancies for accommodation that satisfies their demographic needs, as the private rental sector largely provides accommodation for smaller households. 75. Existing tenants, with the possible exception of private unfurnished tenants, have at least security of tenure to compensate for their lack of housing market purchase power; unlike newly forming households who experience great 106

difficulty in securing social housing or affording market provision accommodation. One third of whose household heads are unemployed and 80% of those who are in work earn incomes insufficient to service a mortgage (“Hackney Housing Needs”, 1994). These figures are in line with earlier research, extrapolating the Family Expenditure Survey, which estimated that only a tenth of newly formed households could afford to purchase homes within the Borough (G Bramley “Meeting Housing Needs”, 1991). The vast majority of these newly formed households are therefore dependent on heavily subsidised private rental accommodation or, in the majority of households with children, on social housing providers. 76. Newly formed households with insufficient income to make the transition to independent living in market cost accommodation form a very substantial proportion of the Council’s statutory housing obligation. Housing these households, and a substantial number of migrant and refugee households, together with the need to rehouse tenants decanted to enable redevelopment and refurbishment schemes will require an estimated 7,500 dwellings in the period 1994-97. 77. While some of this requirement can be found from existing Council and local authority re-lets, the fact that almost 85% of these households require two or more bedrooms means that much of the available dwelling stock would be unsuitable for households with children. The Council would therefore during this period require access to an additional 3,100 dwellings with two or more bedroom spaces merely to satisfy its statutory housing obligations. (“Hackney Housing Strategy 1994-97”) 78. This ‘statutory needs’ requirement should be further set within the context of a three year requirement which represents over half of the Borough’s Strategic Guidance London Borough of Hackney Adopted UDP – June 1995

(1989) allocation for additional dwellings of all tenures over a period almost five times greater. 79. These figures, and the foregoing paragraphs, graphically demonstrates the scale of the affordable housing needs in the Borough and the crucial necessity of the Council pursuing land use and planning policies to redress this most pressing problem. The Council fully shares the concerns expressed by both SERPLAN and LPAC as to the serious detrimental impact on the Borough’s socio-economic structure of the lack of new affordable and low cost housing. 80. The Council must, however, exercise caution in supporting LPAC’s recommendation that local plans should specify that 25% of all additional new built dwellings should be affordable and low cost housing, in view of the Borough’s particular situation whereby such a high proportion of new dwellings are provided either through the conversion of existing premises or small new build schemes. Therefore, in the opinion of the Council, it is essential that all larger site new build residential schemes should normally make appropriate provision to address the Borough’s need for affordable and low cost housing. Such schemes should, preferably, be developed on the basis of specific planning agreements. Special Needs Housing 81. The Council is aware of the problems inherent in endeavouring to precisely delineate identified categories of people whose specific housing requirements and needs could be reasonably classified as ‘Special Needs Housing’ (see “Special Needs Housing in London”, LPAC, 1994, for an extensive discussion of these issues).While broadly adopting the categories defined by the Housing Corporation (“Special Needs Procedure Guide”, 1991) the Council recognises that this particular methodological approach may overemphasise the extent to which London Borough of Hackney Adopted UDP – June 1995

certain categories require ‘supportive assistance’ rather than dwellings of a type and layout which permits a more independent life style. For example, the primary requirement for many people with disabilities is the provision of suitably designed accommodation rather than ‘supportive/intensive’ housing management. 82. Many of the issues pertaining to special needs housing also, of course, strongly relate to the affordable housing issues discussed above. For example, many people who have a specific housing requirement which could be construed as a special housing need have insufficient income to adequately satisfy their accommodation requirement without subsidy. 83. H o w e v e r, it would be extremely misleading to simply infer from the available data that all of the dwelling requirements identified below can simply be subsumed into the very much broader issue of non-market or social housing provision; thereby ignoring the tenurial preferences and, in particular, home ownership aspirations of those who could a fford satisfactorily designed market price accommodation. 84. In seeking to draw attention to the need to consider the provision of certain specific types of specialised accommodation, by highlighting a number of special need housing categories below, the Council is not necessarily indicating that other categories do not merit similar classification, elsewhere in this Plan or the relevant Supplementary Planning Guidance. 85. Residents of the Borough, with the highest proportion in London of households with a long term limiting illness or disability, who have a need for accommodation providing enhanced physical access face a particular problem stemming from the structural inability to 107

satisfactorily adapt much of its existing dwellings. This historical dwellings stock legacy largely explains why the Borough is able to provide only about two hundred wheelchair accessible dwellings; a figure which places it among the worst provision boroughs in London. 86. The Council is particularly concerned that the vast majority of the Borough’s wheelchair units are located in its social housing dwelling stock, thereby denying a proper choice of tenurial opportunities. Private sector new build residential developers will therefore be expected by the Council to make an appropriate contribution towards the provision of the substantial number of additional wheelchair units that the Borough will require to satisfy existing and projected future demand. 87. The Council recognises that a substantial proportion of persons who require the use of a wheelchair for external transit purposes do not require the use of a wheelchair within a dwelling constructed to Mobility Accommodation standards. However, the Council considers that such accommodation should properly be regarded within the context of ‘life-time’ housing – suitable for residence from birth to death unless major infirmity intervenes – and therefore should be considered as falling within the purview of general, rather than special needs, housing. Employing the concept of lifetime housing provision is particularly useful in addressing the housing implications of projected demographic changes and, in particular, the seemingly inexorable rise of the elderly population. 88. One in seven Borough household heads are pensioners, many of them with disabilities, and this proportion will increase during the envisaged life span of this Plan with an anticipated particularly sharp rise in the numbers of the very elderly (persons aged over 75, who currently represent 5.4% of the Borough’s 108

population). Older people may require the support services provided by ‘sheltered accommodation’ schemes to enable them to remain living in the community, rather than being transferred to residential care or nursing homes; an option favoured by only 2% of Hackney’s over sixty-fives. Whereas 16% of the over seventies would prefer to vacate their current homes in favour of sheltered or elderly adapted dwellings (“Hackney Housing Survey” and “Survey of the Elderly”, 1989). 89. Many of the currently available 1,700 ‘sheltered units’, virtually all provided by the Council and the housing associations, are located in generally unsuitable areas and buildings, or are otherwise unable to cope with the rapidly rising demand for ‘very sheltered’ accommodation, providing a significantly higher level of facilities and management. A survey undertaken by the Council in 1993 estimated that the Borough required an additional 350 very sheltered dwellings simply to meet short term needs. 90. The major changes in residential care provision for the elderly, persons with disabilities, and others requiring care, embodied in the Council’s Care In the Community Plan will require the provision of a substantial number of new residential care units which, in the Council’s opinion, should be developed on a scale appropriate to the ‘less institutionalised’ ethos of the ‘care in the community’ principle. 91. The Council also recognises the need for other residential support facilities for a wide range of persons whose circumstances require, at least temporary, specialised accommodation, for example, women fleeing from domestic violence and persons discharged from institutions. 92. The expected increase of persons s u ffering from HIV/AIDS will also require compensatory dedicated housing provision as it is readily apparent London Borough of Hackney Adopted UDP – June 1995

that these sufferers experience particularly significant discrimination and disadvantage in the housing market. In this context it should be noted that the incidence of HIV/AIDS in Hackney is among the highest in the country. 93. F i n a l l y, but certainly not least, the Council recognises its obligations to make satisfactory provision for Travellers who reside in and resort to the Borough. The Council has provided a serviced permanent Travellers Site at Wa t e r d e n Road, but there is a considerable waiting list for its twenty pitches and so the Council is actively seeking sites suitable for further Travellers accommodation: notwithstanding the withdrawal of Government funding to provide accommodation for an ethnic minority group who experience particularly severe discrimination and disadvantage in most facets of their socio-economic and cultural life in the Borough.

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Tabl e: 1 Gr oss Househol d I ncome; Hackney and London

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New Development HO1 Provision of Additional Housing THE COUNCIL WILL SUPPORT THE PROVISION THROUGH NEW CONSTRUCTION, REFURBISHMENT AND CONVERSION OF AN ADDITIONAL 6,000 DWELLINGS BETWEEN THE YEARS 1987-2001. THE COUNCIL WILL EXPECT THE ADDITIONAL DWELLING PROVISION TO PROPERLY REFLECT THE ACCOMMODATION NEEDS OF THE BOROUGH.

The Council’s general aim, is that the additional dwellings provided should reasonably reflect the pressures and need for accommodation in the Borough. The Council is required by Strategic Guidance (1989) to make sufficient planning and land use enabling provision for at least 6,000 dwellings between 1987-2001 through new construction and the refurbishment of existing premises. The Council has already in the first seven years of this period (1987-94) issued planning permissions for almost 9,000 dwellings. The Council recognises that not all of these permissions may actually be implemented, and also recognises that, as a result of the very substantial down turn in the private sector residential property market in recent years, the annual rate of new permissions issued has fluctuated very substantially during this period (see Table 2). Moreover, a very substantial proportion of permissions issued in recent years in respect of new build schemes relates to major estate redevelopment programmes which represent a considerable overall dwelling loss. Notwithstanding this, the Council believes it is on target towards providing the requisite 6,000 net additional dwellings and will continue to monitor the issue and rate of implementation of new planning permissions and the availability of sufficient land and premises. The Council has indicated in the proposals schedule sites capable of providing new housing. The Council will, when appropriate, use its legal powers and resources to assist developers to assemble sites for low cost and affordable housing. It recognises that in view of the scarcity of land suitable for housing redevelopment, the majority of these additional dwellings will be obtained through the refurbishment and conversion of existing

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under-utilised residential and other premises. The Council also wishes to ensure that proposed dwellings should provide a range of housing opportunities to satisfy the diverse accommodation needs and tenurial requirements of Borough residents, and, in particular, the need for low cost affordable and accessible housing.

HO2 New Housing Sites THE COUNCIL WILL SAFEGUARD THE SITES SHOWN ON THE PROPOSALS MAP FOR NEW HOUSING.

The sites identified should provide a supply of land suitable for construction of over 1,000 new residential units. The ability to meet demand for new housing through public and private sector housing programmes is constrained by the availability of suitable sites and it is therefore necessary to protect these sites from other uses. In some cases housing on the identified sites may be provided as part of mixed-use schemes, where the Council is satisfied this is the only way of ensuring a viable housing development.

HO3 Other Sites for Housing THE COUNCIL WILL NORMALLY PERMIT HOUSING DEVELOPMENT ELSEWHERE IN THE BOROUGH WHERE: (A) DEVELOPMENT OF THE SITE DOES NOT CONFLICT WITH OTHER POLICIES AND PROPOSALS IN THE PLAN AND IN PARTICULAR WITH THE RETENTION OF LAND AND FLOORSPACE FOR EMPLOYMENT USES; (B) THE ENVIRONMENT OF THE SITE IS ACCEPTABLE OR WOULD BE MADE ACCEPTABLE BY THE PROPOSAL IN

Aside from those sites identified on the proposals map for new build housing other sites may become available by land assembly, redevelopment and the abandonment of outworn buildings. These ‘windfall’ sites will also help meet the Borough’s target for housing provision. New housing, however, would not normally be acceptable where sites or buildings are needed in order to protect employment opportunities (see Policy E6). The need to conserve sites of environmental or ecological significance and to protect the interests of residents adjoining a site may also constrain the availability of land for housing.

ACCORDANCE WITH POLICIES IN THE


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ENVIRONMENTAL QUALITY CHAPTER; AND (C) THE PROPOSED SCHEME IS OF A HIGH QUALITY WITH MINIMAL DISADVANTAGES TO RESIDENTS IN THE SURROUNDING AREA AND IS COMPATIBLE WITH SURROUNDING USES

Improvement of Housing HO4 Improvement of Older Housing THE COUNCIL WILL FAVOURABLY CONSIDER PROPOSALS TO IMPROVE OLDER DWELLINGS WHICH ARE UNFIT, LACKING IN AMENITIES, OR IN SUBSTANTIAL DISREPAIR.

Rehabilitation of older dwellings can provide a high standard of accommodation in terms of size and amenities. In addition old buildings often have character worthy of preservation. The Council will consider the declaration of Renewal Areas as appropriate and will also make available housing improvement and renovation grants, (Local Government and Housing Act 1989) subject to funding made available by the Government.

HO5 Estate Improvement THE COUNCIL WILL SECURE, WHERE POSSIBLE, THE RENOVATION AND IMPROVEMENT OF SUBSTANDARD BLOCKS OF FLATS AND ENVIRONMENTAL IMPROVEMENT OF ESTATES WHERE THIS MEETS THE NEEDS OF RESIDENTS.

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Over half of the Council and housing association estate dwellings in Hackney require major work to provide an acceptable standard of accommodation. Many dwellings are, however, unsuitable for refurbishment as they are located on estates so unsatisfactorily constructed, designed and laid out, as to warrant comprehensive redevelopment. The Council recognises that the tenant led comprehensive redevelopment of large estates, covering several acres, will require innovative planning and urban design to ensure that previous mistakes are not replicated. The Council therefore recognises that the application of some Plan policies and planning standards, intended for much smaller scale development, may not be appropriate in these circumstances and, in particular, in cases where a high proportion of residents are desirous of returning to new dwellings designed and laid out to their specific requirements. London Borough of Hackney Adopted UDP – June 1995

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Note: The Council has identified programmes of improvement works and major estate redevelopment under Comprehensive Estates Initiative and Estates Regeneration Strategy programmes, details of which can be obtained from the Council’s Director of Housing. This Plan contains proposals for major works on the Trowbridge and Clapton Park, Holly Street, New Kingshold and Nightingale Estates.

HO6 Residential Use of Upper Floors Above Shop Units THE COUNCIL WILL SUPPORT PROPOSALS WHICH BRING UPPER FLOORS ABOVE SHOP UNITS INTO RESIDENTIAL USE PROVIDING ADEQUATE ACCESS AND REFUSE STORAGE FACILITIES ARE PROVIDED. THE COUNCIL WILL NOT APPLY ITS DWELLING MIX POLICIES TO SUCH PROPOSALS.

The Borough has a substantial number of vacant or under-utilised upper floors above shops, which could be refurbished to provide a substantial number of small residential units. Financial assistance from Central Government and Council funding may be available for this purpose. The location of most of these premises and their lack of external amenity space would not provide satisfactory accommodation for children and the Council will therefore not apply its dwelling mix policies in respect of such proposals. The Council will require all proposals involving above shop residential use to make satisfactory provision in respect of residential access, the security of the retail unit and also the storage of domestic and commercial refuse in order to provide and maintain a satisfactory and secure environment for residents, retail operators and shoppers (see also Policy R15).

Loss of Housing HO7 Redevelopment of Housing THE COUNCIL WILL NORMALLY RESIST THE DEMOLITION AND REDEVELOPMENT OF HOUSING WHICH WOULD RESULT IN A NET LOSS OF DWELLINGS EXCEPT WHERE IT IS NECESSARY TO MEET THE SOCIAL AND HOUSING NEEDS OF AFFECTED RESIDENTS AND London Borough of Hackney Adopted UDP – June 1995

Solutions to unsatisfactorily built, designed and laid out estates may necessitate demolition. S i m i l a r l y, while the improvement of older housing is a Council priority, poor housing conditions may require selective demolition. For site assembly or access reasons demolition 115

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of some dwellings may be essential to enable a site to be developed satisfactorily.

(B) DEMOLITION IS REQUIRED TO PROVIDE ACCESS TO AN ADJACENT DEVELOPMENT OR TO ASSEMBLE A SITE FOR NEW HOUSING; AND (C) THERE ARE NO ADVERSE EFFECTS ON THE TOWNSCAPE OF THE SURROUNDING AREA.

HO8 Loss of Housing THE COUNCIL WILL NOT NORMALLY PERMIT A LOSS OF RESIDENTIAL FLOORSPACE OR SITE AREA EXCEPT WHERE: (A) IT IS ESSENTIAL TO MEET THE PROVISIONS OF POLICY HO7;

The Council wishes to maintain the extent and variety of housing in the Borough by limiting the loss of housing. Loss of housing will normally only be acceptable where it is a consequence of removing substandard or socially unacceptable dwellings, for example, systems-built tower blocks.

(B) THE SITE IS SHOWN ON THE PROPOSALS MAP FOR ANOTHER USE; (C) THE SITE IS IN A DEFINED EMPLOYMENT AREA; (D) THE SITE IS IN THE RIGHT LOCATION FOR AN ESSENTIAL COMMUNITY FACILITY THAT CAN ONLY BE PROVIDED BY USE OF A RESIDENTIAL BUILDING; (E) AN ALTERNATIVE USE IS THE SOLE MEANS OF PRESERVING AND MAINTAINING A LISTED BUILDING, (F)

ACCOMMODATION ABOVE A SHOP UNIT IS

Changes of use or redevelopment are likely to be acceptable where adjoining uses preclude the possibility of providing satisfactory accommodation, such as in defined employment areas. In some instances it may be necessary to allow the change of use of housing in order to meet local and community needs for social, cultural, healthcare, religious and educational facilities. The particular circumstances of listed buildings and disused accommodation over shops may also merit changes of use from housing to ensure improvement and reuse of dilapidated buildings.

DISUSED AND IS IN SUCH A SERIOUS STATE OF DISREPAIR THAT IT WOULD BE UNREASONABLE TO EXPECT IT TO BE BROUGHT INTO AN ACCEPTABLE CONDITION FOR RENEWED RESIDENTIAL USE (SEE POLICY R15) THE PROPOSED USE SHOULD NOT BE TO THE UNACCEPTABLE DETRIMENT OF SURROUNDING RESIDENTS.

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HO9 New Build Housing Schemes THE COUNCIL WILL NORMALLY PERMIT NEW BUILD HOUSING SCHEMES WHICH PROVIDE: (A) AN APPROPRIATE MIX OF DWELLINGS; SUBJECT TO SITE CHARACTERISTICS ONE THIRD SHOULD PROVIDE FAMILY ACCOMMODATION OF THREE OR MORE BEDROOMS, SUITABLE FOR USE BY FOUR OR MORE PERSONS; ONE THIRD OF THE FAMILY ACCOMMODATION SHOULD BE FOUR BEDROOM UNITS, SUITABLE FOR USE BY SIX OR MORE PERSONS; FAMILY ACCOMMODATION SHOULD HAVE DIRECT ACCESS TO A GARDEN. (B) DWELLINGS SUITABLE FOR OCCUPATION BY PEOPLE WITH DISABILITIES; ON SITES WITH SUITABLE ACCESS THE COUNCIL WILL SEEK TO ENSURE HOUSES AND GROUND FLOOR UNITS DESIGNED TO MOBILITY STANDARD AND ON SUITABLE

The Council considers that new housing should normally contribute to meeting priority needs in Hackney. The Borough is densely built-up and there are relatively few housing land opportunities. In view of this, the Council is concerned that new housing schemes recognise the Borough’s particular demographic characteristics and needs by providing a balanced range of new housing opportunities and choice. Hackney has a greater requirement for family-sized accommodation than most London boroughs. It has significantly larger than average household sizes, in particular those with young children. Almost half the Borough’s population are from ethnic minority communities. Some have significantly higher than average household sizes and have cultural and religious requirements for sex segregated sleeping arrangements for children. This indicates the Borough’s substantial demographic requirement for both 3 bedroom units and l a rger family units providing 4 or more bedrooms.

SITES GREATER THAN 0.1 HECTARE (0.25 ACRE) 10% OF SUCH UNITS DESIGNED TO WHEELCHAIR MOBILITY STANDARDS; (C) SAFE AND CONVENIENT LEVEL ACCESS FROM THE PAVEMENT TO THE FRONT ENTRANCE OF EACH DWELLING WHEREVER FEASIBLE; (D) AN APPROPRIATE DENSITY OF DEVELOPMENT; NORMALLY OF APPROXIMATELY 250 HABITABLE ROOMS

L a rger families experience difficulties in meeting their accommodation needs and tenurial preferences as most of Hackney’s l a rger dwellings are on upper floors in Council flatted blocks with poor amenity provision. New housing development which includes a proportion of large houses with gardens, normally of a minimum size of 30 square metres and regularly shaped, will ensure that the needs of larger households with children are better met.

PER HECTARE (100 PER ACRE); (E) DWELLINGS SO DESIGNED AND CONSTRUCTED AS TO MINIMISE ENERGY CONSUMPTION.


The Council therefore considers that the specific housing requirements and local needs of the Borough constitute sufficient “specific planning reasons” to seek to ensure that new housing development “should incorporate a reasonable mix and balance of house types and sizes to cater for a range of housing needs” as enjoined by PPG3. 117

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The Council recognises that the policy needs to be applied with reasonable flexibility in individual cases in view of the diff e r e n t characteristics of particular sites and the need for a range of housing types. It has over ten years’ experience of flexibly implementing this policy in negotiation with a wide variety of developers and development agencies. This has secured the Council’s objective of ensuring a reasonable amount of new family accommodation whilst allowing private housebuilders to provide smaller units (the overwhelming majority of new dwellings permitted have been one or two bedroom units). Whilst the Policy places an emphasis on securing family accommodation, the Council accepts that some sites are not suitable for households with children, such as where there is a very poor external environment and there is little opportunity to provide suff i c i e n t external amenity space. Such sites are better suited to the needs of small non-family households. The Council also considers that new housing should, wherever feasible, be accessible to people with a disability. Hackney has the highest proportion of London residents with a limiting long term illness or disability but has proportionately fewer dwellings suitable for wheelchair usage than most other boroughs. Since house conversions are generally not suitable for wheelchair accommodation, the Council considers than on new build housing schemes it should negotiate provision of “housing for disabled people on suitable sites”, as enjoined by both Strategic Guidance and PPG3. Where site conditions permit, the Council will therefore seek to ensure that new housing will be accessible both to households which require mobility accommodation and also those increasingly attracted to the concept of ‘lifetime housing’. On larger sites, over 0.1 hectare, and where site conditions permit, the 118


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Council considers it reasonable to seek to ensure that 10% of houses and ground floor dwellings are constructed, or capable of easy adaption, to wheelchair mobility requirements (see Supplementary Planning Guidance). Developments by registered housing associations or other approved providers of low cost and affordable housing schemes may be exempted from the normal dwelling mix and disability units provision because they add to the range of accommodation available in the Borough. This helps the Council exercise its statutory housing obligations through, for example, the provision of nomination rights. The Policy seeks to control density to ensure that new residential development makes the best use of available land yet provides a satisfactory residential environment. The density of a large residential development can alter, or determine the character and function of the surrounding residential area. The Council accepts that there may be circumstances where the normal density requirements are inappropriate. This may occur, for example, where a site’s small size, awkward shape, or relationship to adjoining buildings, requires a special design solution. The Council also recognises that the redevelopment and refurbishment of larg e estates may require a higher than normal density which would, however, represent an overall substantial reduction from the original very high density. In line with the Government’s evolving concern for the principle of sustainable development, the Policy seeks to ensure that new housing is designed so as to minimise energy consumption. The Council will routinely review the operation of this policy in the light of relevant information and guidance so as to ensure that it continues to be amenable to the provision of new build accommodation in accordance with housing needs and requirements. London Borough of Hackney Adopted UDP – June 1995

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HO10 Large Housing Schemes IN SCHEMES INVOLVING THE DEVELOPMENT OF NEW BUILD HOUSING ON SITES OF MORE THAN 0.4 HECTARE (1.0 ACRE) THE COUNCIL WILL SEEK TO ASSURE PROVISION OF: (A) AN ELEMENT OF AFFORDABLE AND LOW COST HOUSING FOR PEOPLE IN PRIORITY NEED; (B) LAND AND FACILITIES FOR CHILDCARE,

The Borough has only a very limited number of large sites suitable for new housing provision in accordance with other Plan policies. The Council must therefore ensure that such sites satisfactorily contribute to providing new housing, properly reflecting the diverse and varied accommodation needs of Borough residents in accordance with Strategic Guidance and Policies ST21 and HO1.

PLAY (SEE POLICY OS10), CULTURAL, LEISURE, HEALTH AND SHOPPING PURPOSES APPROPRIATE TO THE NUMBER AND NEEDS OF THE PROSPECTIVE RESIDENTS.

In determining housing development proposals in respect of these large sites, the Council will, with due regard to specific site acquisition and development costs, seek to ensure the provision of affordable and low cost housing on suitable sites as enjoined by PPG3, and advice issued by LPAC and SERPLAN and also in accordance with Policy ST23. The terms ‘affordable’ and ‘low cost’ are often used both separately and mutually inclusively in reference to the issue of general accessibility to housing, although as a ffordable housing is also commonly employed more specifically in reference to tenurial rental provision, with low cost housing similarly equated with subsidised home ownership, the Council therefore considers it prudent to employ both terms in its policy. SERPLAN has defined affordable housing as “that which is accessible to people whose incomes are insufficient to enable them to afford adequate housing locally on the open market”. The Council’s Housing Survey has indicated the extent to which local residents are unable to afford market housing but further work is necessary to precisely quantify the optimum consumer cost of housing provision, both purchase/shared ownership and rental. Considerable work has already been undertaken at the national level in this field of

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research. The National Federation of Housing Associations, for example, has argued that reasonable housing costs should not exceed 20% of net household income, although the Housing Corporation has indicated it favours a substantially higher, up to 35%, income ratio. The Council recognises that some residents, particularly first time house purchasers, are currently spending an even higher proportion of their income on housing costs. This h o w e v e r, cannot be strictly regarded as representing total consumption expenditure owing to the element of deferred savings implicit in the expected increased capital value, consequent on long term property market rises. The Council will therefore, following further research and consultations with local housing providers, issue guidance as to what, in its opinion, would represent affordable and low cost housing accessible to Borough residents. The Council will also consider ways of ensuring that low cost housing provided in compliance with Policy HO10 remains available and accessible to those with low incomes following initial construction and occupancy. The Council recognises that the level of public investment available during the life time of this Plan is likely to be grossly i n s u fficient in relation to the Borough’s a ffordable housing provision requirements and will therefore, in accordance with Government policy, seek to actively encourage private sector housing developers to assist the Council in realising its statutory housing obligations. This may include the provision of homes for people in priority need through nominations, from the Council’s housing list, to low cost home ownership or affordable rental and shared ownership schemes. The Council will also actively encourage partnership developments between the private sector and London Borough of Hackney Adopted UDP – June 1995

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registered housing associations. This strategy should ensure that the scarce resource of land suitable for new housing is used, in part, to accommodate residents in the greatest housing need and should therefore be of particular benefit to disadvantaged groups. The Council also considers that mixed tenurial schemes on l a rge sites should provide an appropriate range of tenurial opportunities to satisfy demographic household requirements; especially potential purchasers requiring family sized accommodation in the Borough. The Council recognises that the satisfactory development of large housing schemes, which will provide an attractive residential environment and thus enable the evolution of a new residential community, involves substantially more than the mere provision of dwellings of an acceptable standard, design and layout. Such schemes therefore require a qualitatively different assessment than smaller schemes. Consideration must be given at the earliest possible design stage to ensuring that prospective residents will have satisfactory access to essential non-housing facilities and amenities sufficient to their needs and requirements. The precise nature and form of the non-housing facilities and amenities to be provided as an integral component of the proposed development will be dependent on the capacity of any existing facilities and amenities to absorb the likely new demand without detriment to existing residents. The Council will indicate appropriate social housing and community facility provision in the planning briefs prepared for site redevelopment. The Council’s requirements may be met through the imposition of planning conditions or through an appropriate legal agreement (Also see Policy R4).

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HO11 Sites with Constrained Street Frontages THE COUNCIL MAY PERMIT THE DEVELOPMENT OF SITES WITH CONSTRAINED STREET FRONTAGES FOR RESIDENTIAL PURPOSES SUBJECT TO CONSIDERATION OF (A) BUILDING DESIGN (WHICH SHOULD BE IN KEEPING WITH OR COMPLEMENTARY TO EXISTING TOWNSCAPE CHARACTER); (B) IMPACT ON EXISTING AMENITY, OPEN SPACE OR MATURE TREES; (C) VEHICULAR ACCESS AND PARKING PROVISION; AND

Sites with constrained street frontages, such as backland and infill land, often not formerly in residential use, present particular redevelopment problems. The Council must ensure that proposals for residential redevelopment will not adversely affect the amenities of adjoining residents, nor the character of the adjacent townscape and local environment, through overdevelopment, inappropriate design and construction, or loss of amenity and open space. The Council must also ensure that the proposed new residents will have a satisfactory residential environment free of detrimental noise and other pollution sources.

(D) ENVIRONMENTAL IMPACT STEMMING FROM ADJOINING LAND USES AND IMPACT STEMMING FROM ADJACENT SOURCES OF TRAFFIC NOISE AND DISTURBANCE OR EXISTING INDUSTRIAL ACTIVITIES.

HO12 Conversions THE COUNCIL WILL NORMALLY PERMIT A CONVERSION SCHEME IN HOUSES OF NOT LESS THAN 120 SQ.M.(1,300 SQ. FT.) FLOORSPACE, INCLUDING INTERNAL CIRCULATION, UNLESS IT CONFLICTS WITH MEETING THE SOCIAL AND HOUSING NEEDS OF RESIDENTS OF A PROPERTY OR AREA WHICH THE COUNCIL HAVE SPECIFIED AS A RENEWAL AREA. THE COUNCIL WILL NORMALLY EXPECT SUCH SCHEMES TO PROVIDE A VARIETY OF ACCOMMODATION, INCLUDING A MINIMUM OF

The Council considers it essential to maintain an adequate stock of houses suitable for occupation as ‘single family dwellings’ to meet a continuing need for such accommodation in the Borough. The threshold of 120 sq.m. will enable the retention of houses for households with children whilst permitting houses of greater floorspace to be converted to provide a range of dwelling sizes. In each conversion scheme the Council generally wishes to see at least one family unit (minimum 3 bedrooms) provided.

ONE FAMILY UNIT OF 3 OR MORE BEDROOMS, SUITABLE FOR 4 OR MORE PERSONS, WITH ACCESS TO A GARDEN. IN MORE SUBSTANTIAL PROPERTIES, PROVISION SHOULD BE MADE FOR LARGER FAMILIES.

Note 1: Floorspace of houses as it applies to policy HO12 means gross existing habitable floorspace. It London Borough of Hackney Adopted UDP – June 1995

The Council estimates that the minimum floor area required to provide a three bedroom and another unit is 120 sq.m. and that the subdivision of smaller houses would not meet the requirements of this Policy. The Council also recognises that there are housing areas such as Renewal Areas (designated under the Local Government and Housing Act 1989) where 123

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includes hallways, landings, stairways, bathrooms and kitchens as well as habitable rooms. It does not include cellars, vaults or non-habitable basements, roof spaces, or detached outbuildings.

the conversion of properties will conflict with the Council’s objectives in meeting the needs of local residents.

Note 2: For the purpose of definition a ‘substantial property’ is a premise at least 50% (180 sq.m. minimum floorspace) larger than the conversion threshold size (120 sq.m. floorspace).

A variety of size of accommodation in the older housing stock is essential to meet residents future needs. The high rate of conversions is such that there has been a substantial loss of accommodation suitable for households with children. This policy allows for use and sub-division to small units in schemes that provide a larger dwelling. There is an acute need to maintain accommodation for larger households (eight or more persons) wherever possible. Large households have experienced extreme difficulty in gaining access to accommodation. This has particularly disadvantaged households from black and ethnic minority communities. The larger the dwelling, the wider the range and size of households that can be satisfactorily accommodated. The Council is obliged to plan for the needs of larger households by taking every opportunity to create and maintain accommodation of a suitable size. The Council recognises that a dif f e r e n t dwelling mix may be required to enable the refurbishment of Listed Buildings and those situated in Conservation Areas in order to retain their distinctive townspace character. Elsewhere a very poor external environment and inability to provide satisfactory external amenity space may mean that conversions which do not provide a family sized unit would be acceptable. The Council also recognises that schemes to improve the accommodation and amenities of existing tenants of non-self contained accommodation may also require a different dwelling mix. Similarly it may not be appropriate to apply a specific dwelling mix policy in respect of those schemes undertaken as part of a wider rental or shared ownership programme which contributes to meeting the

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Council’s statutory housing responsibilities by the provision of nomination rights. The Council will routinely review the operation of this policy in the light of e m e rging and other relevant information, including strategic advice and guidance, so as to ensure that the policy continues to be amenable to the provision of accommodation in accordance with housing needs and requirements. The Council will also monitor the undertaking of conversions to ensure that they do not further generate undue detriment, through traffic and parking congestion e.g., to residential amenities.

HO13 Conversions Within Original Envelope THE COUNCIL WILL NOT NORMALLY PERMIT THE ERECTION OF SIGNIFICANT EXTENSIONS, NOR THE EXCAVATION OF HITHERTO NON-HABITABLE BASEMENTS OR THE ADAPTION OF ROOF SPACE FOR THE PRIMARY PURPOSE OF INCREASING THE NUMBER OF UNITS TO THE DETRIMENT OF EXISTING AMENITIES AND THE CHARACTER OF THE AREA’S TOWNSCAPE.

The Council recognises that the overdevelopment of premises for the primary purposes of providing additional units, rather than improvement and the enhancement of dwelling living space through the erection of large extensions or adaption of non-habitable floor or roof space, may be unacceptably detrimental to both existing residential amenities and the character of the area’s townscape. (See Policies EQ1, EQ5 and EQ6).

Houses in Multiple Occupation and Hostels HO14 Houses in Multiple Occupation THE COUNCIL WILL NORMALLY PERMIT THE USE OF HOUSES IN MULTIPLE OCCUPATION AS NON SELF-CONTAINED DWELLINGS PROVIDING: (A) THE HOUSE HAS A FLOORSPACE OF MORE THAN 120 SQ.M. (1,300 SQ.FT.) INCLUDING INTERNAL CIRCULATION; (B) THE DENSITY OF OCCUPATION WOULD NOT HAVE AN UNACCEPTABLE IMPACT ON THE CHARACTER OF THE SURROUNDING AREA OR ON LIVING CONDITIONS OF LOCAL RESIDENTS; London Borough of Hackney Adopted UDP – June 1995

The Council recognises that there is a pressing shortage of accommodation for rent in the Borough. The constraints which have been imposed on the social house building programmes, the decline of the private rental sector and relatively high purchase prices means that many local people — particularly the low paid, the young, the single, women, and black and ethnic minorities — experience great difficulty in obtaining satisfactory accommodation. With the result that there is a high level of homelessness among such groups. 125

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(C) THE ACCOMMODATION IS NOT ACCEPTABLY

In these circumstances, the provision of non self-contained units to accommodate small households without children in houses in multiple occupation can assist in widening the range of accommodation to meet local housing needs.

SUBSTANDARD IN TERMS OF FACTORS SUCH AS DAYLIGHT, SUNLIGHT, ASPECT, AND AMENITY SPACE; (D) THE USE AS A HOSTEL FOR HOMELESS FAMILIES IS EXCLUDED.

Note 1: For the purpose of definition ‘houses in multiple occupation’ are residential premises, occupied by persons who do not form a single household, subdivided to provide individually tenanted non selfcontained, non-serviced, self-catering permanent accommodation occupied in rooms as bedsits, flatlets, on a floor by floor basis, or any combination of these arrangements. Note 2: The use of a ‘house in multiple occupation’ is distinct from other forms of residential use. The Council considers that a ‘house in multiple occupation’ is a ‘sui generis’ use, different from the defined residential use classes (Town and County Planning Use Classes Order 1987) in that, for example, there is a greater degree of selfcontainment, there is no institutional aspect, there is no occupation by a single family or household, and no significant services provided by the landlord. Note 3: Under the GLC (General Powers) Acts 1973 and 1983 the use of residential accommodation for temporary sleeping accommodation for less than ninety consecutive nights is a material change of use requiring planning permission. Note 4: Intending developers of houses in multiple occupation are also advised that the Council has adopted a HMO Registration Scheme to ensure that such accommodation can comply or is capable of complying with the Council’s Standards for Houses and Flats in Multiple Occupation, further details of which can be obtained from the C o u n c i l ’s Environmental Protection Division. Intending developers are also strongly advised to contact the Council’s Building Control Service to ascertain how their proposals can comply with ‘means of escape’ requirements.

Notwithstanding this, the Council recognises the need to control the use of houses in multiple occupation (HMO) to ensure basic amenity and safety provision, in the interests of both occupiers and adjacent residents, in accordance with relevant housing and environmental legislative requirements. The Council has been enjoined by the Government to make specific provision for HMOs in its Unitary Development Plan as part of a coherent corporate approach to this important housing issue (“The HMO Management Guide”, DOE (1992)). In determining a proposal for use as a house in multiple occupation the Council will consider the basic suitability of the premises in accordance with other policies of the Plan. The Council will therefore not permit the multiple occupation of houses of less than 120 sq.m. (1,300 sq. ft.) floorspace in order that a stock of houses suitable for households with children is retained (this also applies to conversion into self-contained units — See Policy HO12 — and use as Hostels — See Policy HO15). The Council also recognises that the use of both statutory and locally listed buildings as Houses in Multiple Occupation may not be appropriate if the necessary internal layout arrangements to comply with the relevant legislation would result in unacceptable alterations to the character and layout of the premises. The Council will not normally permit the use of a house in multiple occupation to accommodate households with children as such premises are not normally capable of providing the type and range of amenities,

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including external amenity space, that households with children require. The Council must ensure that non-self contained dwellings provide satisfactory accommodation, without detriment to the amenities of adjacent residents or to the local environment and townscape. The Council will therefore publish, and periodically update, detailed Supplementary Planning Guidance as to how such accommodation can be provided. Appropriate planning conditions to restrict the use of approved houses in multiple occupation to specified numbers and types of occupiers, normally excluding family household use, may also be considered by the Council where circumstances warrant. In determining proposals for use as a house in multiple occupation the Council will also have regard to the numbers of existing premises of this type within the local area in order to avoid increasing the potential stress on local amenities and services to the detriment of existing residents.

HO15 Residential Hostels THE COUNCIL WILL NORMALLY PERMIT THE USE OF HOUSES AS RESIDENTIAL HOSTELS PROVIDING: (A) THE HOUSE HAS A FLOORSPACE OF MORE THAN 120 SQ.M. (1,300 SQ. FT.) INCLUDING INTERNAL CIRCULATION; (B) THE DENSITY OF OCCUPATION WOULD NOT HAVE AN UNACCEPTABLE IMPACT ON THE CHARACTER OF THE SURROUNDING AREA OR ON LIVING CONDITIONS OF LOCAL RESIDENTS; (C) THE ACCOMMODATION IS NOT UNACCEPTABLY SUBSTANDARD IN TERMS OF FACTORS SUCH AS DAYLIGHT, SUNLIGHT, ASPECT AND AMENITY SPACE;


The Council recognises that there is a pressing shortage of accommodation for rent in the Borough. The constraints which have been imposed on the social house building programmes, the decline of the private rental sector and relatively high purchase prices means that many local people — particularly the low paid, the young, the single, women, and black and ethnic minorities — experience great difficulty in obtaining satisfactory accommodation. With the result that there is a high level of homelessness among such groups. In these circumstances, the provision of residential hostels can assist in widening the range of accommodation to meet housing needs and, in particular, those seeking transitional or medium stay accommodation. 127

POLICIES (D) THE USE WILL NOT LEAD TO AN UNACCEPTABLE CONCENTRATION OF HOSTELS WITHIN A RESIDENTIAL AREA.

Note 1: For the purpose of definition hostels are defined as residential premises providing non self-contained, serviced (but without any significant element of care or supervision), temporary accommodation; occupied on general occupancy licence, rather than tenancy contractual basis. Note 2: The use of premises as a residential hostel is a ‘suis generis’ use (i.e.) specifically exempted from the Use Class Order as amended (April 1994). Note 3: Intending developers of residential hostels are also advised that the Council has adopted a Registration Scheme to ensure that such accommodation can comply or is capable of complying with the C o u n c i l ’s Standards for Houses and Flats in Multiple Occupation, further details of which can be obtained from the Council’s Environmental Protection Division. Intending developers are also strongly advised to contact the Council’s Building Control Service to ascertain how their proposals can comply with ‘means of escape’ requirements.

JUSTIFICATION

Notwithstanding this, the Council recognises the need to control the use of residential hostels to ensure basic amenity and safety provision, in the interests of both occupiers and adjacent residents, in accordance with relevant housing and environmental protection legislative requirements. The Council has been enjoined by the Government to make specific provision for residential hostels in its Unitary Development Plan as part of a coherent corporate approach to this important housing issue (“The HMO Management Guide,” DOE (1992)). In determining a proposal for use as a residential hostel, the Council will consider the basic suitability of the premises in accordance with other policies of the Plan. The Council will therefore not permit the use of houses of less than 120 sq.m. (1,300 sq. ft.) floorspace as residential hostels in order that a stock of houses suitable for households with children is retained (this also applies to conversion into self-contained units — See Policy HO12 — and use of Houses in Multiple Occupation — See Policy HO14). The Council may not permit the use of a residential hostel to accommodate families with children, even for short stay purposes, unless an adequate level of amenities, including external amenity space suitable for family use, can be provided to the satisfaction of the Council. The Council may also not permit a further residential hostel use where this would lead to an unacceptable concentration of hostels within a residential area to the detriment of existing residents, their amenities and, often stretched, local services and educational facilities. The Council also recognises that the use of both statutory and locally listed buildings as residential hostels may not be appropriate if the necessary internal layout arrangements to comply with the relevant legislation would

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result in unacceptable alterations to the character and layout of the premises. The Council must ensure that the provision of residential hostels provides satisfactory accommodation, without detriment to the amenities of adjacent residents or to the local environment and townscape. The Council will therefore publish, and periodically update, detailed Supplementary Planning Guidance as to how such accommodation can be provided. Appropriate planning conditions to restrict the use of residential hostels to specified numbers and types of occupiers, which may exclude family household use, may be considered by the Council where circumstances warrant.

Housing for People with Disabilities, Residential Accommodation for Care, Sites for Travellers HO16 Housing for People with Disabilities THE COUNCIL WILL SEEK TO ENSURE THAT SCHEMES FOR THE CONVERSION OF HOUSES WITH LEVEL GROUND FLOOR ACCESS SHOULD BE DESIGNED TO MOBILITY STANDARDS IN SO FAR AS

Strategic Guidance requires the Council to make adequate provision for housing for disabled people who need accommodation constructed to Mobility Housing standards.

IS PRACTICABLE.

The Borough’s potential to provide additional accommodation for people with a mobility disability through conversions (a very important potential source of new dwellings) is substantially circumscribed by existing townscape and premise constraints. The Council will therefore seek to encourage developers to provide mobility standard accommodation where level ground floor access is practicable. Households containing people with disabilities cover the entire range of household sizes and the Council will expect Mobility Housing provision to reflect this. In addition people with disabilities often have lower than average incomes and are therefore particularly dependent on social housing provision. London Borough of Hackney Adopted UDP – June 1995

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The Council may secure the implementation of its housing for persons with disabilities requirements through the imposition of appropriate planning conditions or through an appropriate legal agreement.

HO17 Residential Accommodation for Care THE COUNCIL WILL ENCOURAGE THE DEVELOPMENT OF RESIDENTIAL ACCOMMODATION FOR CARE TO MEET SPECIAL NEEDS IN STREETS WHICH ARE PREDOMINANTLY IN RESIDENTIAL USE PROVIDING THERE WOULD BE NO UNACCEPTABLE DETRIMENT TO RESIDENTIAL AMENITIES OR THE CHARACTER OF THE ADJACENT AREA..

Note 1: For the purposes of this policy the following definition applies:

The trend to a less institutionalised style of care provision, inherent in the concept of ‘care in the community’ will significantly increase the existing substantial demand in Hackney for the development of residential accommodation for care. The Council will normally welcome such proposals but may impose appropriate planning conditions to restrict the use of residential accommodation for care to specified number and types of occupiers in order not to cause detriment to the amenities of adjacent residents.

‘Special Needs’ groups are: (i)

People with physical or mental disabilities

(ii)

Frail and elderly people

(iii) Single homeless persons who require mutual aid or supervision (iv) Persons who require specific welfare provision and residential supervision (v)

The Council intends to publish a guidance note on the legislative requirements and Council standards for residential accommodation for care and until it does so intending developers are strongly advised to seek guidance from the Council’s Environmental Protection Division and Social Services.

Other persons who require mutual aid because of their social circumstances, e.g. battered women, ex-prisoners and young people out of care.

Note 2: Where care is provided for less than six residents living together as a single household then the use is classified as ‘Class C3 Dwelling House’ and for more than six residents living together as a single household then the use is classified as ‘Class C2 Residential Institutions’ in the Town and Country Planning (Use Classes) Order 1987.

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POLICIES

JUSTIFICATION

HO18 Sites for Travellers THE COUNCIL WILL MAKE PROVISION FOR TRAVELLERS RESIDING IN AND RESORTING TO THE BOROUGH.

The Council has an obligation to provide adequate facilities, in the form of sites and services for Travellers residing in, or resorting to, the Borough, and who experience severe discrimination and disadvantage in obtaining suitable stopping or permanent sites.

Safety and Accessibility HO19 Safety and Accessibility THE COUNCIL WILL SEEK TO ENSURE THAT ALL HOUSING SCHEMES PROVIDE A SAFE, SECURE AND ACCESSIBLE RESIDENTIAL ENVIRONMENT APPROPRIATE TO THE SCALE OF DEVELOPMENT AND IN PARTICULAR: (A) THAT THE DEVELOPMENT SHOULD OFFER SECURE ACCESS ROUTES, (AVOIDING THE

A housing scheme designed to incorporate safe and secure access routes, together with the minimal amount of uncontrolled communal space, will provide residents with a safe and secure residential environment, generating an enhanced sense of personal security, while reducing the opportunities for vandalism and other anti-social deviancy.

INCORPORATION OF SECLUDED OR UNDERUTILISED PEDESTRIAN WAYS); (B) THAT ENTRANCES AND ROUTES HAVE CLEAR LINES OF SIGHT, VISIBILITY SPLAYS AND LIGHTING AND ARE CAPABLE OF BEING OVERSEEN FROM ADJACENT BUILDINGS; (C) THAT COMMUNAL AREAS, WHICH ARE NOT SUPERVISED OR OVERSEEN, ARE KEPT TO A MINIMUM, AND (D) THAT APPROPRIATE SECURITY MEASURES TO PROTECT INDIVIDUAL DWELLINGS ARE INCLUDED, (E) THAT ACCESS ROUTES ARE SUBJECT TO TRAFFIC CALMING MEASURES WHERE

The Council will also encourage developers to incorporate high standards of internal security in dwellings and, in particular, to pay particular attention to doors and windows. The Council will refer to, as necessary, the “Police Architectural Liaison Manual of Guidance” (Home Office, 1994) when determining such applications, and intending developers are also strongly advised to seek guidance from the Hackney Police Crime Prevention Design Advice Service. The requirements to maximise residential security should not however result in any diminution of traditional and established public rights of access and transit. (See Policies HO9 and TR16 for accessibility by people with disabilities.)

APPROPRIATE.


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POLICIES

JUSTIFICATION

HO20 Planning Standards THE COUNCIL WILL SEEK TO ENSURE THAT HOUSING DEVELOPMENTS ARE SATISFACTORY IN TERMS OF THE FOLLOWING CRITERIA AND WILL ISSUE SUPPLEMENTARY PLANNING GUIDANCE AS APPROPRIATE IN RESPECT OF THESE CRITERIA: (A) DESIGN AND MATERIALS; (B) PRIVACY OF ADJOINING OCCUPIERS; (C) ACCESS AND FACILITIES FOR PEOPLE WITH DISABILITIES; (D) LANDSCAPING; (E) PROTECTION AND PROVISION OF TREES; (F)

SIZE, LAYOUT AND PROVISION OF EXTERNAL AMENITY SPACE;

(G) PLAY AND OTHER COMMUNAL FACILITIES; (H) PARKING AND ACCESS; (I)

The Council is concerned to ensure that housing development is carried out in accordance with current best practice in order to help secure and improve the amenity of the Borough and its residents. It has set out the general criteria upon which it will assess housing development proposals in order to ensure that they can be taken into account when it is considering planning applications. It will expect all housing developments to have regard to supplementary planning guidance which it will produce and update from time to time. The Council will also expect all new housing development to reflect Government policy and guidance in respect of energy efficient design and construction, insofar as they relate to legitimate planning issues.

THE IMPACT ON THE TOWNSCAPE AND THOSE POLICIES SET OUT IN THE ENVIRONMENTAL QUALITY CHAPTER;

(J)

REFUSE STORAGE FACILITIES; AND

K)

DRAINAGE AND SEWERAGE;

(L) ENERGY CONSERVATION.

The Council also strongly advises all intending developers to seek guidance in respect of the Building Regulations, and, in particular, those pertaining to sound insulation from the Council’s Chief Building Control Officer.

Note: The Council will also consult with Thames Water as the sewerage undertaker and/or its sewerage management contractor, to ensure housing development is of an acceptable standard in terms of drainage and sewerage.

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Chapter 4

Employment INTRODUCTION

Office Development E12 Office Development

STRATEGIC POLICIES NATIONAL POLICY CONTEXT REGIONAL POLICY CONTEXT METROPOLITAN POLICY CONTEXT LOCAL POLICY CONTEXT New Development E1 Development Sites E2 Development within Defined Employment Areas E3 Development outside Defined Employment Areas E4 Storage and Distribution Development

Small Firms, Provision for People with Disabilities, Training, Nurseries, Servicing E13 Small Firms E14 Access and Facilities for People with Disabilities E15 Training E16 Provision of W o r k p l a c e Nurseries and Creches E17 Retention of Off-Street Service Facilities Planning Standards E18 Planning standards

Retention of Sites and Floorspace E5 Retention of Sites and Floorspace within Defined Employment Areas E6 Retention of Employment Sites and Premises outside Defined Employment Areas E7 Industrial and Commercial Improvement Areas Nuisance, Special Industries, Car Repairs, Breakers and Open Site Uses E8 Employment Uses and Nuisance E9 Special Industries E10Car Repairs E11Car Breakers and Open Site uses


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use and development of land. The Council encourages new development provided it is suitably located, as without development the Borough’s commercial buildings would not be renewed and would become progressively less suitable for future use. The type and scale of development possible on each site will partly be a function of its public transport assessibility and the quality of its vehicular access.

Introduction 1.

2.

Retaining existing jobs, improving their quality and creating new employment opportunities are central issues for the Council. Local businesses, by providing employment and incomes for both residents and those from outside H a c k n e y, contribute directly to the prosperity of the Borough and to London as a whole. The Council is concerned to ensure that jobs are provided locally to meet the needs and aspirations of the resident workforce whilst recognising that Hackney is a part of the wider economic structure and labour market of London. In common with the rest of London, H a c k n e y ’s economy has changed dramatically over the last twenty years. A decline in manufacturing has been partly offset by a growth in the service sector which in Hackney is primarily located in the Shoreditch area near to the City.

ST25 THE COUNCIL WILL RESIST THE LOSS OF EMPLOYMENT LAND AND PREMISES THROUGH CHANGES OF USE AND REDEVELOPMENT, ESPECIALLY WITHIN DEFINED EMPLOYMENT AREAS.

Justification 4.

The retention of employment land and premises in employment use is essential if existing jobs are to be retained and new development made possible. Employment land is often vulnerable to displacement by other land uses which are more valuable, such as housing. The Council will normally resist such housing development as it can provide sufficient housing land to meet local and strategic housing needs on existing housing sites and through conversions.

5.

The jobs provided by Hackney firms are important both in the local and London wide context with the majority of jobs in Hackney being held by people from outside the Borough. Parts of the Borough are predominantly occupied by commercial land uses and these coherent areas are given the strongest protection by their inclusion within Defined Employment Areas (DEA). They are suited for continued employment use and possible future redevelopment. Elsewhere in the Borough firms are found scattered through town centres and residential areas. These firms provide valuable local employment for those who need to work near to home and will also be protected.

Strategic Policies ST24 THE COUNCIL WILL ENCOURAGE EMPLOYMENT GENERATING DEVELOPMENTS IN SUITABLE LOCATIONS WITH APPROPRIATE ROAD AND PUBLIC TRANSPORT ACCESS.

Justification 3.

New development, whether of new buildings or the change of use and refurbishment of existing buildings, is essential if the Hackney economy is to grow to provide jobs and prosperity for the future. Firms grow and need to relocate and new firms are continuously being established. Both the London and the Hackney economy are in a process of dynamic change which is reflected in the


135

and on street parking. Finally it can add to the very large amount of of f i c e floorspace lying vacant in London or that which has no possibility of implementation.

ST26 THE COUNCIL WILL ENCOURAGE OFFICE AND BUSINESS DEVELOPMENT SOUTH OF WORSHIP STREET AND IN THE STRATEGIC AND MAIN SHOPPING CENTRES.

Justification 6.

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The service sector of the London economy is forecast to grow in importance as a source of jobs and prosperity over the plan period. The Council will therefore support such development in appropriate locations. Office developments and especially major developments such as Broadgate draw their workforce from all over London and the South East as well as from Hackney. That part of the Borough to the south of Worship Street is the most accessible in the Borough by public transport having easy access to Liverpool Street Main Line Station and to Moorgate and Liverpool Street underground stations. It is very well suited to major office development. Hackney’s town centres, especially the strategic centre at Dalston, are also suitable locations for smaller scale office development. All are well served by public transport and all have the services and shops which are valued by of f i c e workers; office development will strengthen their town centre roles and add to their vitality. Future public transport investment will add to the accessibility of these areas. East-West Crossrail will improve accessibility to the Wo r s h i p Street area. Chelsea-Hackney Tube Line will improve accessibility to Dalston and Mare Street and the East London Line Extension will improve accessibility to the Worship Street area and Dalston. H o w e v e r, office development in the wrong locations can have a very negative effect. It can displace existing firms, often industrial ones providing manual employment for skilled and semi-skilled local people, directly or through increased land values. It can aggravate the existing undue strain on public transport and lead to commuting by car

National Policy Context Planning Policy Guidance Note 4: Industrial and commercial development and small firms 7.

This PPG sets out the Government’s general policies on economic development. It states that industrial and commercial development is vital to the expansion of the economy and of employment. Government policy indicates that local planning authorities should be supportive to the setting up and growth of small firms and that economic development should only be prevented or restricted when this serves a clear planning purpose. It states that development plans can provide guidance about suitable locations to firms looking for satisfactory premises and that policies should state clearly where d i fferent kinds of businesses can be located. It states that local planning authorities should aim to ensure that there is sufficient land available for industry and commerce, and advises that light industry, offices and many forms of small businesses can be accommodated within residential areas without creating unacceptable increases in traffic, noise or other adverse effects.

Regional Policy Context Regional Planning Guidance Note 9: Regional Guidance for the South East 8.

This RPG includes an objective to foster economic growth and to take advantage London Borough of Hackney Adopted UDP – June 1995

of the region’s strengths and capitalise on them. The guidance seeks to ensure that an adequate supply of land in suitable locations continues to be made available for industrial and commercial developments, including the needs of small firms and new industries. Economic development should ensure the fullest use is made of existing infrastructure, buildings and land; it should conserve resources and protect the environment. 9.

Regional Planning Guidance for the South East (RPG9) advocates that economic growth and investment should be encouraged in inner and east London allied with restraint in the south and west of the region. It identifies a need to develop policies to support and assist an appropriate mix of employment growth in inner and east London to make the best use of available land, labour and capital.

Metropolitan Policy Context Strategic Planning Guidance 10. Strategic Guidance for London includes as one of its objectives: “To foster economic growth while taking careful account of the impact on the environment and transport”. Strategic Guidance advocates that Boroughs should ensure that good quality accessible sites are identified for job-creating development and notes that there are likely to be development opportunities on large sites in London which were formerly required for public utilities or services but which are no longer required. It states that in central London further land for business development should be made available. Boroughs surrounding the City of London should make every effort to accommodate such development within the broader planning objectives for their areas. 11. Strategic guidance advocates that Boroughs should ensure that good quality London Borough of Hackney Adopted UDP – June 1995

sites for general industrial use (Class B2) are available where demand justifies and that this is often the best way of preserving or creating new jobs. The UDP should encourage the development of smaller and growing businesses and make provision for storage/distribution use (Class B8) but not at the expense of good quality industrial and business land, and not where adverse effects on the environment and traffic would result. UDP should reflect the changing needs of industry and current or likely future demand for such development. Strategic Planning Advice 12. Strategic Advice additionally advises Boroughs to ensure a better co-ordination between the location of economic development and transport policies and services. In relation to business development it advises that large scale business development should be centred around central London and key public transport interchanges such as Liverpool Street. It also provides for smaller scale development in town centres and recognises the importance of negotiated planning advantages including the provision of training in relation to business development. It notes the development of over supply of off i c e floorspace in the early 1990s. This trend has been confirmed by the the LPA C 1990-1993 annual reviews. Considerable importance is being attached to policies to retain and improve industrial land and buildings where appropriate, and to foster new and expanding businesses. The preservation of manual jobs in locations accessible to areas of community need is one of the objectives of Advice.

Local Policy Context 13. The 1980s were a time of dramatic change in London’s economy which have been reflected in Hackney, and which have influenced the employment 137

prospects of Hackney residents. There has been a large decline in manufacturing employment in London, double the national rate of decline, which has been matched by a growth in service industries. Table E1 shows how these trends have affected the employment structure of Hackney with a decline in manufacturing and an increase in the service sector. The table also reveals how the total number of jobs in Hackney has declined and shows that certain sectors of manufacturing remain important employers. Traditionally these sectors have been important employers of women and black and ethnic minorities. It is anticipated that these trends will continue to operate throughout the lifetime of this Plan, although at varying rates, as they reflect underlying structural changes to the London economy. 14. Although growth in the service sector has provided valuable employment for Londoners and residents of the south east there is room for concern that Hackney residents may not have the training and qualifications to take their share of the new employment. The 1991 census revealed that manual workers made up 36.6% of the Hackney workforce compared to 32.6% across London. Furthermore the labour force surveys of 1984 and 1985, and the “Labour Market Strategy for Hackney, Islington and the City of London” commissioned by these authorities in 1991, indicate that L o n d o n ’s black and ethnic minority workers are over represented in the manufacturing, construction and transport sectors of the economy and under represented in the banking and finance sector. This dependence together with the contraction of manufacturing partly explains the very high levels of unemployment amongst London’s black and ethnic minority population.

date and relevant. It clearly shows that the provision of training for Hackney residents is the key to reducing high structural unemployment levels and to allow Hackney residents to benefit from future employment growth in the City, the West End and South Shoreditch. 16. Overall levels of unemployment in Hackney remain very high with 20,267 people unemployed in December 1994, an unemployment rate of 23.9%. In some wards male unemployment was then as high as 40% (Westdown Ward) and 42% (Queensbridge Ward). By way of contrast the unemployment rate for Greater London was 10.1%, with an average male rate of 12.9%. 17. The decline in the number of jobs within Hackney has increased the need for residents to look for work outside the Borough. In this respect it is unfortunate that Hackney is poorly served by Underground railway lines which would assist residents and their access to employment in the Greater London area. Implementation of the Chelsea-Hackney Line and East London Line Extension proposals would greatly improve access to Central London for Hackney residents. 18. The 1991 census revealed that 41% of economically active residents worked within the Borough, which represents only 33% of the total number of employees. This means that 67% of all jobs within the Borough are occupied by commuters, a figure which has increased from 61% in 1981. This trend is contrary to the aims of sustainable development. In order for this trend to be countered there is a necessity to protect and promote a network of easily accessible employment areas throughout the Borough and to take a long-term view of this necessity.

15. The Labour Market Strategy examines the local economy and its future prospects in some detail and is both up to 138


Table E1 Hackney: Employment Totals and Changes 1984-1991

OVERALL TOTAL DECLINE Engineering Textiles Metal and other manufacturing Construction Distribution Transport, communications and utilities Public Admin & Defence Education & Health Other services GROWTH Chemicals, Minerals and Mining Oils Food, Drink and Tobacco Business Services of which: Banking & Finance Insurance Business Services (Narrow)

1984

1991

CHANGE 1984-91

% OF WORKFORCE 1991

79,874

70,109

-9,765

2,941 5,691 6,068 5,235 11,741

1,633 3,755 4,538 3,897 9,070

-1,308 -1,936 -1,530 -1,338 -2,671

2.3 5.4 6.5 5.6 12.9

12,089

11,413

-676

16.3

13,701 20,685

13,641 11,397

-60 -9,288

19.5 16.3

311 227 7,566

488 695 17,132

177 468 9,566

0.7 1.0 24.4

1,031 526 6,009

5,516 767 10,845

4,485 241 4,836

7.9 1.0 15.5

Source: Census of Employment


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POLICIES

JUSTIFICATION

New Development E1 Development Sites THE COUNCIL WILL SAFEGUARD THE SITES SHOWN ON THE PROPOSALS MAP FOR EMPLOYMENT GENERATING DEVELOPMENTS (CLASSES B1, B2 AND B8), AS DEFINED IN THE PROPOSALS SCHEDULE.

The sites shown on the proposals map are well suited to employment generating development, that is development for business (Class B1), industrial (Class B2) and storage/distribution (Class B8) purposes. The safeguarding and development of such sites for employment uses will help to fulfil the accommodation demands of London businesses, provide accessible local jobs throughout Hackney, help to achieve the Council’s wider employment objectives and contribute to the fulfilment of Strategic Advice and Guidance. The proposals schedule indicates the Council’s preferred type of development for each particular site, some of which are best suited to industrial development and others for business or storage/distribution developments or for a mixture of uses. Other proposed employment developments will be treated on their merits. H a c k n e y ’s aged building stock tends to constrain economic activity as firms are hindered by unsuitable premises and other related problems. New firms and firms wishing to relocate to Hackney are often forced to look elsewhere for premises. The provision of modern premises with good ancillary facilities will be an important factor in attracting new firms to Hackney and retaining existing firms. The Council will monitor trends in usage of employment land in general, and of allocated sites in particular, during the Plan period.

E2

Development within Defined Employment Areas

THE COUNCIL WILL GIVE FAVOURABLE CONSIDERATION TO EMPLOYMENT-GENERATING

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The Council has identified Defined Employment Areas (DEA) on the Proposals London Borough of Hackney Adopted UDP – June 1995

POLICIES

JUSTIFICATION

DEVELOPMENT WITHIN THE DEFINED

Map in which it will encourage new employment generating development. They vary in size, accessibility and character. The Council will encourage different types of development in the DEA to reflect this d i v e r s i t y, including the refurbishment of premises and the construction of new premises as appropriate.

EMPLOYMENT AREAS WHERE: (A) IT DOES NOT CONFLICT WITH THE POLICIES APPLYING ONLY TO THE SOUTH SHOREDITCH INSET AREA; (B) THE USE WILL NOT CAUSE SERIOUS NUISANCE BY WAY OF VISUAL INTRUSION, NOISE, VIBRATION, AIR POLLUTION OR TRAFFIC GENERATION TO ADJOINING USES OR TO THE SURROUNDING AREA. RESIDENTIAL DEVELOPMENT WILL NOT NORMALLY BE PERMITTED WITHIN DEFINED EMPLOYMENT AREAS.

Some sites and premises in DEA are not used for employment purposes. If they become vacant the Council will seek their development for employment generating uses, although with the exception of those sites shown on the Proposals Map, the active removal of non-conforming uses will not be pursued. The Council considers that opportunities for residential development exist elsewhere and that the introduction of residential uses into employment areas would undermine employment objectives and would offer a poor standard of residential amenity.

E3 Development Outside Defined Employment Areas THE COUNCIL WILL NORMALLY GIVE FAVOURABLE CONSIDERATION TO EMPLOYMENT GENERATING DEVELOPMENT (CLASSES B1, B2 AND B8) OUTSIDE THE DEFINED EMPLOYMENT AREAS WHERE THE USE WILL NOT CAUSE SERIOUS NUISANCE BY WAY OF VISUAL INTRUSION, NOISE, VIBRATION, AIR POLLUTION OR TRAFFIC

Where appropriate sites become available outside DEA the Council will seek development for employment generating purposes. Development of these sites will assist in improving the range and quality of available floorspace and, because of their dispersed location, provide valuable local employment.

GENERATION TO ADJOINING USES OR TO THE SURROUNDING AREA


Because of Hackney’s varied pattern of land use with pockets of industry interspersed with housing, shops and other uses, some of the Borough’s employment generating floorspace is located outside the defined employment areas. This floorspace is an important part of the local economy and provides accessible local jobs. The Council wishes to protect, and if possible add to, this employment by encouraging new development, and improvements and extensions to existing premises. 141

POLICIES

JUSTIFICATION

E4 Storage and Distribution Development THE COUNCIL MAY PERMIT A STORAGE AND DISTRIBUTION USE ON AN EMPLOYMENT SITE (CLASSES B1-B2) PROVIDING: (A) THE LEVEL OF TRAFFIC GENERATION WILL NOT CAUSE SERIOUS NUISANCE TO ADJOINING USES OR TO THE SURROUNDING AREA; AND EITHER (B) IT WILL CREATE AN EMPLOYMENT DENSITY COMPARABLE TO AN INDUSTRIAL OR

The Council recognises the need for and benefits of storage/distribution uses. However it is concerned that such uses can cause environmental nuisance and tend to provide fewer jobs of a lower quality than other forms of employment related development. Because of the shortage of land suited to employment development in Hackney, the Borough’s high unemployment rate and the congested road system, the Council particularly wishes to discourage those bulk storage/ distribution uses which require large sites and utilise large vehicles, but which offer few jobs.

BUSINESS USE; OR (C) IT IS ESSENTIAL TO MEET THE NEEDS OF LOCAL INDUSTRY; OR (D) AN ELEMENT OF STORAGE AND DISTRIBUTION FLOORSPACE IS ESSENTIAL FOR THE ACHIEVEMENT OF A PREDOMINANTLY INDUSTRIAL SCHEME ON THE SITE.

Retention of Sites and Floorspace E5

Retention of Sites and Floorspace within Defined Employment Areas

WITHIN DEFINED EMPLOYMENT AREAS THE COUNCIL WILL NORMALLY RESIST ANY PROPOSALS WHICH RESULT IN A REDUCTION OF SITE AREA OR FLOORSPACE USED FOR EMPLOYMENT GENERATING LAND USES (CLASSES B1-B8) EXCEPT WHERE THE SITE IS TO BE REDEVELOPED FOR SUCH USES AND THERE IS NO LOSS OF SITE AREA, OR WHERE THE SCHEDULE OF PROPOSALS INDICATES THAT AN ALTERNATIVE FORM OF DEVELOPMENT MAY BE ACCEPTABLE.

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In order to maximise employment in the Borough it is important that existing employment sites and premises are retained for employment purposes. Retaining and improving existing floorspace is essential to ensure that an adequate supply is available to meet the needs of local firms and firms wishing to relocate to Hackney. Nonetheless the Council recognises that there will be occasions when redevelopment or improvement/refurbishment result in a net reduction of floorspace. Similarly the provision of training or childcare facilities or improvements to servicing arrangements may result in lost floorspace. Such losses are nonetheless acceptable in that they can lead to a higher quality of accommodation, better London Borough of Hackney Adopted UDP – June 1995

POLICIES

JUSTIFICATION

facilities for employees and a better trained workforce. Note: It is considered that there are very special considerations applying to the Wa t e r d e n Road/Hackney Wick DEA and there is a qualification to the otherwise restrictive policy to the extent indicated in the Schedule of Proposals. The special circumstances applying to the Waterden Road/Hackney Wick DEA are as follows: This site is different from other DEA within Hackney due to the uniqueness of its location in forming a prominent ‘gateway’ to the Borough. The site presents a poor appearance being characterised by dilapidated buildings and l a rge areas of open land. There is thus an urgent need for regeneration to be seen to be taking place at this location. A retail development such as a large food store may be an acceptable use in this particular DEA, as the likely number of employees would match or exceed the employment levels one would expect in a new B1, B2 or B8 scheme. The policy and Proposal 123 do not, however, commit the site for retail use; normal planning considerations apply e.g. accessibility by public transport and impact on town centres.

E6

Retention of Employment Sites and Premises outside Defined Employment Areas

OUTSIDE THE DEFINED EMPLOYMENT AREAS THE COUNCIL WILL NORMALLY RESIST ANY PROPOSALS WHICH RESULT IN A REDUCTION OF SITE AREA OR FLOORSPACE USED FOR EMPLOYMENT GENERATING LAND USES (CLASSES B1-B8) EXCEPT WHERE THE SITE OR PREMISES ARE VACANT, AND IN THE OPINION OF THE London Borough of Hackney Adopted UDP – June 1995

A major concern of the Council is to retain and create local employment opportunities. Hackney is characterised by a low level of car ownership, a relatively poor public transport system and a population containing many single parent families for whom access to local employment is important. 143

POLICIES

JUSTIFICATION

COUNCIL NEITHER THE SITE OR PREMISES ARE

Many of the commercial premises outside DEA provide good low cost accommodation for firms which cause little or no disruption to adjoining uses or the surrounding area. If access to local employment is to be fostered these sites and premises need to be retained in employment use.

SUITED FOR ANY EMPLOYMENT GENERATING LAND USE (CLASSES B1-B8).

If existing buildings are no longer suitable for continued employment use then redevelopment may enable contemporary employment requirements to be met. The Council recognises that there will be cases where reoccupation by an industrial use or storage/distribution use is likely to lead to serious nuisance by way of noise, vibration, air pollution or traffic generation to adjoining uses or to the surrounding area. This policy accordingly allows for business (Class B1) development in order to retain an employment use on such sites. There will however still be some sites where no new employment use or redevelopment would be possible without causing serious nuisance to adjoining uses or to the surrounding area, and sites which the Council accepts are no longer suited for further employment use on other grounds. These include sites, which although still capable of use, have been vacant for prolonged periods; and those which, though still in active use, cause such environmental problems as to justify redevelopment for other purposes. In these exceptional cases the Council will consider alternative proposals including residential development. These windfall sites will assist the Council to provide sufficient dwellings to meet the dwelling provision (1987-2001) guidelines set out in Strategic Guidance. Loss of floorspace upon redevelopment, refurbishment or other improvement to provide training or childcare facilities will normally be acceptable. (See Justification to Policy E5).

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POLICIES E7

JUSTIFICATION

Industrial and Commercial Improvement Areas

THE COUNCIL WILL CONTINUE TO SUPPORT EXISTING INDUSTRIAL AND COMMERCIAL IMPROVEMENT AREAS AND, WHERE APPROPRIATE, DECLARE FURTHER AREAS UNDER THE INNER URBAN AREAS ACT, 1978.

The Council has declared improvement areas in run down areas to upgrade their poor quality buildings and improve their environment, often thereby bringing sites and premises back into productive use. The Council can utilise additional powers and finances only available within improvement areas to encourage improvements to sites and premises by means of loans and grants to businesses, who often cannot afford all the cost of the necessary improvement works themselves. The Council will declare additional improvement areas when and where it is feasible and appropriate.

Nuisance, Special Industries, Car Repairs, Breakers and Open Site Uses E8 Employment Uses and Nuisance THE COUNCIL WILL ENCOURAGE IMPROVEMENTS TO THOSE SITES AND PREMISES WHERE THE USE CAUSES NUISANCE. FURTHER DEVELOPMENT WILL ONLY BE PERMITTED WHERE THE COUNCIL IS SATISFIED THAT IT WILL NOT LEAD TO AN INCREASE IN THE NUISANCE. IN EXCEPTIONAL CIRCUMSTANCES THE COUNCIL WILL SEEK TO ASSIST THE RELOCATION OF THOSE USES WHICH CAUSE A SERIOUS NUISANCE IF NO SIGNIFICANT IMPROVEMENT CAN BE ACHIEVED ON THE EXISTING SITE.

Although industry and storage/distribution uses can often make good neighbours to the occupiers of nearby residential properties or to other commercial uses there are circumstances where the operation of a firm creates nuisance by virtue of unsociable working hours, onstreet parking and loading/unloading, or as a result of noise, smells, dust, vibration, etc. It may be possible for businesses to make onsite improvements to minimise such nuisance and the Council will seek to encourage such improvements through negotiation where appropriate.

E9 Special Industries THE COUNCIL WILL FAVOURABLY CONSIDER PROPOSALS INVOLVING THE ESTABLISHMENT OF SPECIAL INDUSTRIES WITHIN DEFINED EMPLOYMENT AREAS PROVIDING: (A) THERE ARE NO ADJOINING OR NEARBY DWELLINGS; AND


The Council recognises that there is a need for sites/premises for special industrial firms and that they can provide significant levels of employment. However it also recognises that the operations involved can cause environmental nuisance for adjoining commercial uses even when they are located away from residential properties. 145

POLICIES

JUSTIFICATION

(B) THE COUNCIL BEING SATISFIED THAT THE USE WILL CAUSE NO NUISANCE OR LOSS OF AMENITY BY WAY OF NOISE, VIBRATION, SMELL, FUMES, SMOKE, SOOT, ASH, GRIT OR TRAFFIC GENERATION TO ADJOINING USES OR TO THE SURROUNDING AREA.

E10 Car Repairs THE COUNCIL WILL PERMIT THE USE OF SITES OR PREMISES FOR CAR REPAIRS ONLY WHERE THIS WILL NOT RESULT IN UNACCEPTABLE ENVIRONMENTAL OR VISUAL INTRUSION PROVIDING THERE IS ADEQUATE OFF-STREET PARKING AND WORKING SPACE.

Car repair businesses frequently give rise to complaints. Problems most often occur where such businesses operate from inadequate premises in residential streets. Nevertheless it is estimated that car repair businesses in Hackney employ up to 1000 people, a high proportion of whom are from the black and ethnic minority communities, and the Council wishes to preserve this important source of employment and service to residents. The prospect of nuisance from car repair businesses is reduced if premises have adequate off-street facilities for parking and repairs, and hours of operation are controlled.

E11 Car Breakers and Open Site Uses THE COUNCIL WILL NOT PERMIT CAR BREAKERS AND OPEN SITE USES (SUCH AS STORAGE, TRANSPORT DEPOTS, OR SIMILAR) IN RESIDENTIAL AREAS OR WHERE THEY WILL CREATE UNACCEPTABLE ENVIRONMENTAL OR VISUAL INTRUSION.

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Although there is a demand for the products and services provided by such uses as car breakers, car sales and the storage of building materials, scaffolding and pallets etc, experience shows that they often prove environmentally and visually damaging. They tend to provide low levels of employment and they often generate high volumes of traffic. Unless they are dealt with elsewhere in the Plan most open site business and operational uses (excluding retail) will fall within the ambit of this policy. Examples would include those mentioned above together with other uses such as car pounds, and waste transfer stations.


POLICIES

JUSTIFICATION

Office Development E12 Office Development THE COUNCIL WILL IN PRINCIPLE FAVOURABLY CONSIDER OFFICE DEVELOPMENT IN THE FOLLOWING LOCATIONS AND PARTICULARLY ON THE SITES SHOWN ON THE PROPOSALS MAP: (A) DALSTON TOWN CENTRE; (B) STOKE NEWINGTON TOWN CENTRE; (C) MARE STREET TOWN CENTRE; (D) SOUTH SHOREDITCH SOUTH OF WORSHIP STREET. SUBJECT TO ACCOUNT BEING TAKEN OF: (1)

ENVIRONMENTAL CONDITIONS WHICH WOULD BE ASSOCIATED WITH THE DEVELOPMENT;

(2)

THE CAPACITY OF THE PUBLIC TRANSPORT SYSTEM TO CARRY THE WORK JOURNEYS OF THE EMPLOYEES.

Apart from the sites shown on the Proposals Map, the Council has identified four areas in the Borough which are generally suitable for new office development either because of proximity to the City and major railroad termini or because they are town centres with relatively good public transport and supporting facilities, including shops and local services. By directing office development to these four areas, as well as individual sites identified on the proposals map, the Council aims to satisfy the requirements of Strategic Guidance and Strategic Advice and to minimise the pressure for offices at less appropriate locations and where the Council wishes to ensure existing uses are protected. It is also concerned to ensure that the scale of development on each office development site, relates to the capacity of local public transport facilities. South Shoreditch, south of Worship Street, lies within the central activities core zone (CAZ) recommended in Strategic Advice. Specific development policies apply in the South Shoreditch Inset Area relating to office and business development. In some cases it will be appropriate for the Council to seek to secure relevant planning benefits from office development. Where planning obligations are appropriate they will be reasonably related in scale and kind to the proposed development. The Council will follow the guidelines set down in Policy ST3. The failure to provide benefits not related to the development or necessary to the granting of planning permission would not constitute grounds for the Council to refuse an otherwise acceptable planning application. O ffice development in other areas will be considered on its merits subject to the principles of policy E13 and to other policies in the plan.


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Small Firms, Provision for People with Disabilities, Training, Nurseries, Servicing E13 Small Firms THE COUNCIL WILL ENCOURAGE THE PROVISION OF ACCOMMODATION FOR SMALL FIRMS IN NEW BUSINESS OR INDUSTRIAL DEVELOPMENTS.

Good accommodation is required for small and expanding firms. Large scale business or industrial development may provide opportunities for the provision of small firm accommodation. The Policy is not intended to require accommodation for small firms in all new business or industrial developments, or in any particular scheme but the Council would wish to see this included where appropriate. Meeting the needs of small firms is of considerable importance in generating employment growth. Its importance for the future of London is emphasised in Strategic Advice and Strategic Guidance. New or expanding firms generally require accommodation of between 280m 2 a n d 1000m2 on accessible sites in good quality buildings and the Council wishes to see their needs met wherever possible. In doing so the Council recognises that Hackney is predominantly a small business economy. In 1986, 70% of Hackney’s commercial occupiers had 5 employees or less and 92% of industrial firms had 25 employees or less. These proportions are unlikely to have changed since then which indicates that demand for smaller premises will inevitably remain high.

E14 Access and Facilities for People with Disabilities THE COUNCIL WILL ENCOURAGE PROVISION OF ACCESS AND FACILITIES FOR PEOPLE WITH DISABILITIES IN ALL NEW EMPLOYMENT DEVELOPMENTS OR EXISTING BUILDINGS UNDERGOING REFURBISHMENT FOR EMPLOYMENT USE. 148

People with disabilities generally suf f e r disproportionately high levels of unemployment. What employment opportunities are available are often unnecessarily restricted by the physical design of buildings London Borough of Hackney Adopted UDP – June 1995

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which make access and use difficult or impossible. Whenever it is practicable or reasonable the Council will ensure that buildings are accessible and equipped to meet the needs of people with disabilities and so open up the range of employment opportunities available. The Council expects that there will be very few instances where it would not be practicable or reasonable to design new buildings to meet at least minimum standards. It is particularly important to ensure that main and principle entrances are accessible by people with disabilities. E15 Training THE COUNCIL WILL ENCOURAGE THE ESTABLISHMENT OF TRAINING CENTRES, AND TRAINING WORKSHOPS IN ORDER TO DEVELOP THE SKILLS OF THE RESIDENT WORK FORCE AND TO HELP GROUPS, SUCH AS WOMEN, BLACK AND ETHNIC MINORITIES AND PEOPLE WITH DISABILITIES FACING DISADVANTAGE IN THE LABOUR MARKET.

The decline of the manufacturing sector in Hackney and London generally has resulted in a mismatch between job opportunities and the skills of residents. Training will help reduce this skills mismatch and allow residents to compete for jobs in the growing sectors of the e c o n o m y. Other groups of residents suff e r from further disadvantages in competing for work and positive action to train them is necessary.Training will also serve to enlarge the availability of a skilled workforce and help attract firms to the Borough. In considering the balance of advantage of major employment developments, local training provision will be a material factor. As a general guideline, the Council will consider all developments of over 6000m 2 g r o s s floorspace likely to provide accommodation for over 300 jobs to be major employment developments. Where planning obligations are appropriate, the Council will follow the guidelines set down in Policy ST3. The failure to provide benefits not related to the development or necessary to the granting of planning permission would not constitute grounds for the Council to refuse an otherwise acceptable planning application.


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E16 Provision of Workplace Nurseries and Creches THE COUNCIL WILL ENCOURAGE THE PROVISION OF CHILDCARE FACILITIES FOR USE BY EMPLOYEES OF MAJOR EMPLOYMENT DEVELOPMENTS.

A significant number of people who have valuable skills, qualifications and experience are deterred from taking up employment because of childcare responsibilities. The provision of childcare can also be beneficial to employers by helping them to attract and retain staff, reduce absenteeism and to overcome skills shortages. The Council will encourage major employment developments to provide nursery facilities within the development. In considering the balance of advantage of major employment developments, the provision of adequate childcare facilities will be a material factor. If on-site provision is not practicable or reasonable the Council will seek the provision of off-site nursery facilities or other alternative provision, provided there is a net addition of childcare places. The nature and scale of facilities required will be judged on the individual circumstances of the scheme. Where planning obligations are appropriate, the Council will follow the guidelines set down in Policy ST3. The failure to provide benefits not related to the development or necessary to the granting of planning permission would not constitute grounds for the Council to refuse an otherwise acceptable planning application.

E17 Retention of Off-street Service Facilities THE COUNCIL WILL NORMALLY REQUIRE THE RETENTION OF SERVICING FACILITIES (PARTICULARLY LOADING/UNLOADING BAYS, GOODS LIFTS, OPERATIONAL PARKING AREAS AND WIDENED DOORS) WHEN PROPOSALS ARE MADE FOR CONVERSION AND ADAPTION FOR OTHER EMPLOYMENT USES.

150

The Council seeks the retention of the servicing facilities of its building stock in order to protect flexibility in its future use. The extent and details of facilities to be retained will be assessed for each individual proposal, bearing in mind the existing proposed and possible future uses of the building.


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Planning Standards E18 Planning Standards THE COUNCIL WILL SEEK TO ENSURE THAT EMPLOYMENT DEVELOPMENTS ARE SATISFACTORY IN TERMS OF: (A) DESIGN, MATERIALS AND LANDSCAPING; (B) ACCESS AND FACILITIES FOR PEOPLE WITH DISABILITIES (C) CAR PARKING, LOADING/UNLOADING FACILITIES AND CIRCULATION SPACE; (D) DRAINAGE AND SEWERAGE; (E) THE IMPACT ON THE TOWNSCAPE AND THE POLICIES SET OUT IN THE ENVIRONMENTAL

The Council is concerned to ensure that development is carried out in accordance with current best practice in order to help secure and improve the amenity of the Borough and its residents. It has set out the general criteria upon which it will assess development proposals, in order to ensure that they can be taken into account when it is considering planning applications. It will expect all development to have regard to supplementary planning guidance which it will produce and update from time to time to provide guidance for developers.

QUALITY CHAPTER; (F)

HEALTH HAZARD, POLLUTION AND NOISE CONTROL;

AND WILL ISSUE SUPPLEMENTARY PLANNING GUIDANCE AS APPROPRIATE IN RESPECT OF SUCH CRITERIA.


151

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Chapter 5

South Shoreditch INTRODUCTION

SSH7 Retention or Replacement of Retail and Other Service Uses

STRATEGIC POLICY NATIONAL POLICY CONTEXT

SSH8 Changes of use to Retail and Other Service Uses

REGIONAL POLICY CONTEXT METROPOLITAN POLICY CONTEXT LOCAL POLICY CONTEXT SSH1 Appold Street Defined Employment Area SSH2 Industrial Development in the South Shoreditch Defined Employment Area SSH3 Office and Business Development in the South Shoreditch Defined Employment Area SSH4 Wenlock Basin and Hackney Road/Kingsland Road Defined Employment Areas — Retention of General Industrial and Storage or Distribution Uses SSH5 Wenlock Basin and Hackney Road/Kingsland Road Defined Employment Areas — Provision of General Industrial and Storage or Distribution Uses SSH6 Provision of New Retail and Other Service Uses London Borough of Hackney Adopted UDP – June 1995

153

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decade from the growth of the financial and commercial activities in the City of London. This has caused land values in the area to increase substantially encouraging speculation and landa s s e m b l y, with pressure applied to established industrial firms to vacate their premises.

Introduction 1.

2.

3.

4.

South Shoreditch contains the Borough’s greatest concentration of firms and employment, and the successful Broadgate o ffice development. The high level of commercial activity and the area’s close proximity to the City of London and the West End result in greater pressure for change and development than exists elsewhere in the Borough. Private sector investment combined with the Council’s desire to create a stable environment for local businesses and employment have generated many proposals for development. The inset to the proposals map for South Shoreditch enables the Council to identify these proposals and specify a detailed land-use policy for an area that is of great importance to the Borough’s economy. The inset area adjoins the City of London in the south and is bounded to the north by the Wenlock, Hoxton and Haggerston housing estates which are areas of high unemployment. South Shoreditch is the largest industrial area on the City fringe without a major residential element. This factor has facilitated its growth as an industrial area serving the City and the West End. South of Old Street there are only two remaining residential blocks, Victoria Chambers and Penny Bank Chambers. There has been no new residential development within this area due to the Council’s policy of restricting such uses because of the inappropriate environment and the desire not to restrict unduly the operations of local businesses. This policy and the relative absence of residential use has consolidated the role of South Shoreditch as an acceptable location for industrial uses.

5.

The land-use issues in South Shoreditch are relatively complex because of the need to have regard to the area’s relationship both to the metropolitan area and the remainder of the Borough.

6.

The aim of land-use policy for the South Shoreditch area is to strike a balance between facilitating further commercial development and providing a stable environment for existing local business which have traditionally tended to provide employment opportunities for Borough residents.

7.

The policies in this chapter are additional and supplementary to those elsewhere in the Plan and relate only to the South Shoreditch inset area. They are included here to enable detailed policy guidance to be given for this complex employment area. All policies elsewhere in the Plan apply to the South Shoreditch area unless they are superseded by a specific policy in this chapter. For example, Policy SSH4 overrides Policy E5 and Policy SSH5 overrides Policy E2.

8.

South Shoreditch is also an area of strong physical character, the street pattern and legacy of Victorian industrial and commercial buildings contributing to its particular townscape quality. Tw o Conservation Areas have recently been designated covering substantial parts of South Shoreditch lying north of Worship Street up to and including Hoxton Square.

South Shoreditch has experienced acute development pressure over the past


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Strategic Policy ST 27 THE COUNCIL WILL SEEK TO PROTECT AND ENHANCE THE MIXED EMPLOYMENT AND SPECIAL LAND-USE CHARACTER OF THE SOUTH SHOREDITCH INSET AREA.

Justification 9.

South Shoreditch is an area of mixed land-use character comprising mainly commercial and industrial elements along with local retail and service activities. The area retains a strong and distinctive character which derives not only from the mix of employment-generating uses but also the relatively narrow streets with their legacy of Victorian industrial and warehouse buildings accommodating small firms.

10. Bearing in mind its location immediately to the north of the City of London, South Shoreditch is recognised as that part of the Borough which is best suited to accommodate the pressures for additional floorspace to serve the rapidly growing financial services and commercial sectors of the metropolitan e c o n o m y. Such growth would provide increased employment opportunities, most of which, it is considered, are more likely to be taken up by people living outside the Borough taking advantage of the direct accessibility provided by the public transport system and proximity to Liverpool Street Station. 11. Alongside the need to facilitate the growth of the financial services and commercial sector, there is also a need to retain, where appropriate, employment opportunities in a range of industrial activities which are long established in South Shoreditch serving the needs of the City and the markets of the West End. 156

These industrial activities tend to provide valuable employment opportunities for Borough residents. 12. In view of the high unemployment rates within the Borough and particularly within those wards lying close to South Shoreditch (which also suf f e r amongst the highest incidence of social deprivation within London) and the relatively low level of professional, technological and office skills of its workforce, it is important to ensure that a proper balance is struck between competing land-uses which facilitates continued job opportunities for Borough residents in a range of occupations. 13. Having regard to the current over-supply of potential office floorspace ‘in the pipeline’ (i.e. those schemes which have already been granted planning permission and are not yet constructed) within central and inner London, it appears prudent to use planning powers to help to retain existing industrial floorspace where it provides good quality accommodation.

National Policy Context 14. The fundamental message provided to local planning authorities from the various Planning Policy Guidance Notes in relation to employment matters is that a climate should be created that will both encourage investment and increase enterprise and employment generating opportunities. Planning Policy Guidance Note 4: Industrial and commercial development and small firms 15. Planning authorities are required by this note to encourage industrial development. The scope of the note is seen to be primarily directed at applications relating to developments for the production of London Borough of Hackney Adopted UDP – June 1995

goods and services considered vital to the process of economic recovery. In paragraph 7 of PPG4 local planning authorities are advised to ensure that there is sufficient land available for industry and commerce and that the variety of sites is sufficient to meet the d i fferent practical needs of the user. Paragraph 11 states that full use should be made of potential sites and existing premises in the inner cities.

make every effort to accommodate such development within the broader planning objectives for their areas.” (Paragraph 20). 19. Boroughs are advised to provide a sufficient supply of good quality sites so that general industry (Class B2) which continues to be centred in London or wishes to relocate in London can operate efficiently. (Paragraph 21). Strategic Planning Advice

Regional Policy Context 16. Regional Planning Guidance Note 9 contains the Secretary of State’s broad support to the South East Regional Strategic Guidance (SERPLAN) proposals. The Secretary of State expects local authorities to have regard to this guidance in their planning proposals and decisions, particularly in old and decaying areas where the worst effects of the loss of jobs in traditional employment sectors have been felt. Regional strategic guidance is directly relevant to the employment policies in South Shoreditch in that it seeks to foster economic growth and revitalise the older urban areas.

Metropolitan Policy Context Strategic Planning Guidance 17. Strategic Planning Guidance af f i r m s Government commitment to promote employment growth likely to be led by small firms either starting up or expanding by urging local planning authorities to preserve good quality sites for business and industrial development. 18. The provision of more land for business development is encouraged – “Boroughs surrounding the City of London should London Borough of Hackney Adopted UDP – June 1995

20. Strategic Planning Advice refers to the need to stem the decline of general industry and preserve manufacturing jobs, particularly where existing industrial sites operate without detrimental environmental consequences for adjacent activities. South Shoreditch is identified specifically as a preferred industrial location where the aim should be to ensure that a range of well-serviced and accessible accommodation is available. It also provides for smaller scale developments in central areas. The preservation of manual jobs in locations accessible to areas of community need is one of the objectives of Advice. It notes the development of over supply of office floorspace in the early 1990s. Office Pipeline 21. Recent studies of the overall potential supply of office floorspace (i.e. the ‘office pipeline’) in London indicate that there continues to be more than sufficient floorspace available to meet likely requirements in the medium term. Moreover, the London Planning Advisory C o m m i t t e e ’s “Annual Review of Strategic Trends and Policy 1990 – 1993,” suggests that the past spate of of f i c e construction activity and the scale of the pipeline of permitted schemes indicates that London already has the physical capacity to provide the new high quality accommodation often needed by international companies well into the future, thereby ensuring it maintains its pre-eminent position in Europe. 157

Impact of the Use Classes Order and the General Development Order 22. The introduction of the revised Use Classes Order 1987 and the General Development Order 1988, which lifted planning controls and introduced the new ‘Business Use’ Class (BI), had a direct impact on the availability of industrial floorspace within the ‘city fringe’ areas particularly those which lie close to tube stations. A study (September 1990) on behalf of the London Planning Advisory Committee examined the adjoining Borough of Islington and found that during the period 1987–90 Islington is likely to have lost 36% of its industrial units (28% of its industrial floorspace). Moreover, there was a very high vacancy rate for offices in Islington of 40%. The evidence appears to indicate that one major consequence of lifting planning controls on offices has been the promotion of speculation, particularly on the city fringe. It is clear that without support from planning policies industrial firms are often unable to compete with o ffices for floorspace in city fringe locations. The consequence is to force industrial firms out of the area or out of business altogether with implications for local employment and the provision of essential services to support the City of London. South Shoreditch in the London Context 23. South Shoreditch contributes to the economic prosperity of London in two major ways: (i) South Shoreditch contains the Borough’s greatest concentration of firms and employment. The area’s close proximity to the City and West End has traditionally facilitated a range of industrial uses which require easy and frequent access to the markets they serve — e.g. printing /publishing, clothing and furniture manufacture. 158

(ii) Because of its position immediately to the north of the City the area has accommodated over recent years a substantial expansion of the Off i c e Sector (particularly in relation to financial services activities). This includes a large proportion of the Broadgate redevelopment, which in turn has triggered development on neighbouring sites. 24. The Council is mindful of the objectives of the Strategic Guidance for London in the context of South Shoreditch, particularly the need to foster economic growth and to contribute to revitalising the older urban areas. At the same time it is necessary to take account of the area’s major contribution to the employment of local people and to ensure the correct balance between local and wider needs.

Local Policy Context 25. A number of characteristics of South Shoreditch are of direct relevance in preparing the local policy context including the mixed land-use character of the area, the competing demands for floorspace, the need to retain the special townscape character of a substantial part of the area, the relative deficiency in general amenities such as sitting-out areas and the limited range of shops and eatingplaces. 26. The majority of South Shoreditch comprises industrial, warehouse and o ffice uses accommodated within tall buildings and densely developed street blocks. Victoria Chambers and Penny Bank Chambers are the only remaining residential blocks south of Old Street. Elsewhere there are residential communities at Charles Square, Sutton Estate and Buxton Court. These estates need to be sensitively considered against the surrounding industrial environment. London Borough of Hackney Adopted UDP – June 1995

28. Whereas in 1985 industry and warehousing occupied 64% of the 686,000 sq.m. (7,380,000 sq. ft.) of floorspace in economic use, with offices accounting for the remainder, the situation has changed markedly. Whilst one of the major aims of the Council’s land-use policy has been to sustain industrial employment in South Shoreditch, the Council has also promoted commercial office development most notably at Broadgate. This was the largest single office scheme in London which created 5 million sq. ft. of office floorspace, 2 million of which was within the London Borough of Hackney. (Due to the 1994 boundary revisions the whole of the Broadgate development now lies within the City of London). Apart from Broadgate there has been a further 1.7 million sq. ft. of office floorspace constructed since the late 1980s. 28. In addition an estimated 2.7 million sq. ft. of office floorspace could be provided on major vacant sites in the South Shoreditch Inset Area, apart from the 1 million sq. ft. of office floorspace ‘in the pipeline’ (i.e. having been granted planning permission but not yet constructed). Bearing in mind, too, the o ffice floorspace permitted in the adjoining Boroughs of the City, Islington and Tower Hamlets it cannot be said that there is an under-supply of of f i c e floorspace in this locality. 29. The land use survey carried out in 1986 indicated that the area accommodated around 400 firms employing approximately 6,000 persons in general industrial uses. Despite the displacement of a proportion of this industrial floorspace through changes of use to office purposes (as a direct result of the introduction of the new Use Classes Order 1987 and the General Development Order 1988) there remains a demand for industrial floorspace. The particular locational advantages in terms of proximity to the City and the West End makes South Shoreditch attractive to those London Borough of Hackney Adopted UDP – June 1995

manufacturers which require quick access to their clients and customers. The traditional manufacturing industries of clothing, furniture, printing and engineering have been joined by service businesses concerned with publishing, new technology, product design and construction, and wholesaling and distribution. 30. The area is characterised by its wealth of Victorian buildings and historic street pattern. Many of the buildings possess individual architectural merit and their townscape value is enhanced by their concentration. Part of the area north of Worship Street was declared an improvement area under the Inner Urban Areas Act 1978 in order to attract private investment to the improvement of buildings and act as a focus for Council resources. 31. With the increased numbers of people working in South Shoreditch in recent years, the need to provide additional sitting-out areas, shops and eating-places has been identified. It is also important to seek to enliven the appearance at ground level of new commercial developments through the provision of shops.

A Balanced Policy Approach 32. The Council recognises the need to strike a balance between meeting the continuing pressures for further development for o ffice purposes and providing a stable environment for existing local businesses which have traditionally tended to provide employment opportunities for Borough residents. It is necessary therefore to provide clear guidance to developers on the opportunities for development without fuelling speculative proposals which serve to inflate land values and squeeze out industrial uses. 159

33. It is considered that by pursuing a balanced approach to development, enterprise and local community life can flourish in accordance with Strategic Guidance. Provision is made for good quality accessible sites and buildings to meet the accommodation requirements of small and growing businesses. 34. The UDP policies largely consolidate previous policies for South Shoreditch and adopt a ‘spectrum’ approach to the provision of Class B1 (Business) and Class B2 (General Industrial) floorspace by specifying 3 zones: (1) South of Worship Street (Appold Street Defined Employment Area) O ffice and business development would be supported in principle, bearing in mind the location within the central activities core zone, the area’s proximity to Liverpool Street Station and the contribution to the metropolitan economy. (2) N o rth of Worship Street (South S h o reditch Defined Employment Area) In view of the established mixed landuse and the special character of this area there will be a presumption in favour of schemes which either provide or retain an appropriate proportion of Class B2 (General Industrial) floorspace. (3) The Wenlock Basin and Hackney Road/Kingsland Road Defined Employment Areas. The loss of Class B2 and Class B8 (Storage or Distribution) floorspace would be resisted and the provision of additional Class B2 and B8 floorspace would be supported. These 3 policy zones are shown on the figure at the end of this Chapter.

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SSH1 Appold Street Defined Employment Area THE COUNCIL WILL IN PRINCIPLE SUPPORT OFFICE AND BUSINESS (CLASS B1) DEVELOPMENT IN THE APPOLD STREET DEFINED EMPLOYMENT AREA

The Appold Street Defined Employment Area lies south of Worship Street and incorporates that part of the Borough which lies in the immediate proximity of the expanding commercial activity at the fringe of the City. Despite the implementation of of f i c e development at Broadgate and Finsbury Avenue there remains a continuing demand for new floorspace on the City fringe. The area south of Worship Street is particularly suitable for an expansion in office floorspace both in terms of location and market viability. It is served by major public transport interchanges at Liverpool Street and M o o rgate and is well connected by bus services. Construction of East-West Crossrail will significantly enhance accessibility. This policy aims to meet the objectives of Strategic Guidance for London by consolidating the opportunities for further growth of the business sector around the City with a view to fostering the economic growth of London. New office development in the area south of Worship Street may create a demand for facilities and infrastructure which the Council is unable to meet and may result in the loss of existing industrial floorspace. The Council considers that where appropriate such development may be accompanied and made acceptable in physical and land-use terms by planning advantages commensurate with the scale of the proposal. Large scale office and business development can offer the opportunity to include childcare facilities (such as a day nursery or creche) and encourage increased access to employment opportunities for the local workforce, and service uses for the working community. Note: See also Policy ST3


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SSH2Industrial Development in the South Shoreditch Defined Employment Area IN THAT PART OF THE SOUTH SHOREDITCH DEFINED EMPLOYMENT AREA LYING NORTH OF WORSHIP STREET AND SOUTH OF OLD STREET THERE WILL BE A GENERAL PRESUMPTION OF APPROVAL IN PRINCIPLE TO PROPOSALS FOR

The South Shoreditch defined employment area comprises the commercial areas north of Worship Street but excluding the areas around Wenlock Basin and Hackney Road/Kingsland Road.

INDUSTRIAL (CLASS B2) DEVELOPMENT.

The area north of Worship Street accommodates the largest concentration of general industrial use within the Borough. This is represented by many small scale, traditional and modern firms who require a City fringe location to service markets in central and inner London. The absence of any substantial residential use south of Old Street means that South Shoreditch is one of the few areas in the Borough where general industrial firms can function without creating environmental conflict. The range of associated manual job opportunities corresponds with the skills of a large section of the locally unemployed and the Borough’s residential workforce. The Council is attempting to strike a balance within the South Shoreditch inset area between the demand to provide additional Class B1 floorspace and the need to retain industrial uses which directly serve the needs of the City. Much of the pressure for the conversion of industrial and warehouse buildings is speculative and relates to the higher level of market rents commanded by office use. The Council considers that a balanced landuse policy will protect existing industrial jobs in the area and thereby help to control the already very high unemployment level in the Borough, whilst at the same time providing scope for an expansion of business uses and the changing employment needs of the Borough. The Council strongly believes that in the absence of land-use policies to protect the 162


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JUSTIFICATION

general industrial floorspace there is likely to be a very rapid and damaging displacement of many of the industrial firms by of f i c e proposals, most of which are speculative in nature and do not lead to the creation of suitable job opportunities for local people In accordance with the aims of Strategic Guidance for London which seeks to foster economic growth, this policy attempts to consolidate those industrial uses which directly serve the needs of the City and West End.

SSH3 Office and Business Development in the South Shoreditch Defined Employment Area THE COUNCIL WILL IN PRINCIPLE SUPPORT OFFICE AND BUSINESS (CLASS B1) DEVELOPMENT IN THE SOUTH SHOREDITCH DEFINED EMPLOYMENT AREA. WHERE SITE CHARACTERISTICS PERMIT, HOWEVER, THE COUNCIL WILL SEEK TO ENSURE THAT AN APPROPRIATE ELEMENT OF FLOORSPACE

This policy aims to retain the established mix of land uses within South Shoreditch. In supporting the principle of office and business class development, the Council is anxious to ensure that, where appropriate, industrial floorspace is retained or provided as part of new developments.

SUITABLE FOR INDUSTRIAL (CLASS B2) PURPOSES IS RETAINED OR PROVIDED AS A RESULT OF THE DEVELOPMENT.

The Council will seek to achieve this through negotiation in each case, taking account of the individual circumstances and judging each on its merits. Large sites with suitable access for commercial vehicles are likely to be especially suitable for mixed office/business/industrial schemes. The policy reflects the objectives of Strategic Guidance for London by promoting opportunities for the development of business activities and industrial uses which directly support the commercial growth of the City and West End. At the same time the policy contributes to the promotion of the revitalisation of South Shoreditch and aims to facilitate the development of good quality accessible sites and buildings to meet the needs of small and growing businesses. Where the development site is of sufficient


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size and appropriate shape with suitable access, it is normally preferable to provide the general industrial floorspace within a separate building in a fully self-contained manner. Such an arrangement tends to provide greater flexibility of use and is also likely to be more favoured by funding institutions. If it is not possible to provide a separate general industrial building within the development site, it would be preferable to use the basement and lower floors of the single building for industrial purposes. Particular attention needs to be given to the provision of satisfactory access to off-street loading bays and to minimise potential conflict between different users of the building(s). Policy implementation will be complemented by the powers available to assist firms within the South Shoreditch improvement area which was declared in 1979 under the Inner Urban Areas Act, 1978. Within the improvement area, emphasis will be placed upon the refurbishment of existing industrial stock rather than the identification of new development sites, and upon the improvement of the environment and infrastructure. Note: The Schedule of Proposals identifies sites suitable for employment generating development in South Shoreditch and indicates the Council’s preferred form of development

SSH4Wenlock Basin and Hackney Road/Kingsland Road Defined Employment Areas - Retention of General Industrial and Storage or Distribution Uses IN THE DEFINED EMPLOYMENT AREAS ADJOINING WENLOCK BASIN AND HACKNEY ROAD/KINGSLAND ROAD THE COUNCIL WILL NORMALLY RESIST ANY PROPOSALS WHICH 164

The Wenlock Basin and Hackney Road/Kingsland Road areas contain particularly high concentrations of general industrial and warehouse uses in relatively London Borough of Hackney Adopted UDP – June 1995

POLICIES RESULT IN A REDUCTION OF SITE AREA OR FLOORSPACE USED FOR INDUSTRIAL (CLASS B2) AND STORAGE OR DISTRIBUTION (CLASS B8) USES EXCEPT WHERE THERE IS NO LOSS OF SITE AREA.

JUSTIFICATION

modern or well refurbished buildings and well serviced sites. These could be adversely a ffected by property market speculation generated by nearby office and business class uses unless there is some degree of protection. The demand for industrial floorspace appears to remain high and in accordance with the Strategic Planning Guidance for London there is a need to retain and protect good quality accessible sites and buildings to meet the accommodation requirements of small and growing businesses. Note 1: The provisions of the Use Classes Order and General Development Order allow changes of use between certain employment generating uses. Note 2: This policy supersedes Policy E5.

SSH5 Wenlock Basin and Hackney Road/Kingsland Road Defined Employment Areas - Provision of General Industrial and Storage or Distribution Uses IN THE DEFINED EMPLOYMENT AREAS ADJOINING WENLOCK BASIN AND HACKNEY ROAD/KINGSLAND ROAD THE COUNCIL WILL IN PRINCIPLE SUPPORT INDUSTRIAL (CLASS B2) AND STORAGE OR DISTRIBUTION (CLASS B8)

These areas lie close to Wards in the Borough which suffer high unemployment and social stress. It is important to maintain employment opportunities requiring skills which local people possess.

DEVELOPMENT.

Note: This policy supersedes Policy E2.

SSH6 Provision of New Retail and Other Service Uses WITHIN THE SOUTH SHOREDITCH INSET AREA (BUT EXCLUDING THE AREAS AROUND WENLOCK BASIN AND HACKNEY ROAD/KINGSLAND ROAD) THE COUNCIL WILL NORMALLY REQUIRE NEW London Borough of Hackney Adopted UDP – June 1995

Despite a daytime population exceeding 25,000 on weekdays, South Shoreditch remains deficient in retail and associated services. The small retail centres located in 165

POLICIES DEVELOPMENTS WHICH WOULD BRING SUBSTANTIAL NUMBERS OF ADDITIONAL WORKERS INTO THE AREA TO PROVIDE NEW RETAIL OR OTHER SERVICE USES, WHERE THE

JUSTIFICATION

Paul Street, Pitfield Street and at the Old Street/City Road junction provide only a limited range of shops for those working and living in the area.

NEED FOR SUCH USES ARISES DIRECTLY FROM THE DEVELOPMENT IN QUESTION AND WHERE THEY ARE REASONABLY RELATED TO IT IN NATURE AND SCALE.

SSH7 Retention or Replacement of Retail and other Service Uses WITHIN THE SOUTH SHOREDITCH INSET AREA THE COUNCIL WILL NORMALLY REQUIRE THE

Local firms and workers maintain that existing shops and services do not satisfy their requirements. To assist in making South Shoreditch an interesting and convenient working environment, existing retail uses need to be retained and further shops, particularly those involved with the sale of food and convenience goods, encouraged to locate in the area.

RETENTION OR REPLACEMENT OF EXISTING RETAIL AND OTHER SERVICE USES WITHIN PROPOSALS FOR DEVELOPMENT WHERE THEY WOULD BE REASONABLY RELATED TO SUCH PROPOSALS IN NATURE AND SCALE.

Lunch time and recreational facilities are also considered to be deficient, e.g. sandwich bars, restaurants, pubs and wine bars. The provision of additional retail and recreational facilities would contribute to the general sense of liveliness at street level. These policies will enhance the general working environment in South Shoreditch. The policies are in accordance with Strategic Guidance for London in that they help to foster economic growth by making the area a more attractive place for firms to locate. New developments which will bring substantial numbers of additional workers into the area will be expected to include an element of retail or other service use. Each case will be judged on its individual merits and it is likely that major schemes in prominent and accessible locations such as those on or close to the junction of two frontages will be considered especially suitable for inclusion of retail or sevice uses.

SSH8Changes of Use to Retail and other Service Uses WITHIN THE SOUTH SHOREDITCH INSET AREA THE COUNCIL WILL NORMALLY PERMIT RETAIL AND OTHER SERVICE USES PROVIDING THERE IS NO LOSS OF INDUSTRIAL FLOORSPACE WHICH

166

Whilst the provision of additional retail and other service uses is generally encouraged, it is considered that it should not be at the expense of diminishing the supply of sound London Borough of Hackney Adopted UDP – June 1995

POLICIES BENEFITS FROM CHARACTERISTICS SUCH AS CONVENIENT SERVICING FACILITIES, APPROPRIATE FLOOR LOADINGS, ADEQUATE FLOOR TO CEILING HEIGHTS, AND ACCESS TO A

JUSTIFICATION

and well serviced industrial floorspace. It is necessary to retain good quality industrial floorspace in order to ensure that a balance of employment opportunities is maintained.

GOODS LIFT, WHICH MAKE THAT ACCOMMODATION PARTICULARLY SUITABLE FOR OCCUPATION FOR INDUSTRIAL PURPOSES.


167

Defined Employment Areas within the South Shoreditch Inset Area.

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Chapter 6

Transport INTRODUCTION

Helicopter Landing Sites TR14 Helicopter Landing Sites

STRATEGIC POLICIES NATIONAL POLICY CONTEXT REGIONAL POLICY CONTEXT METROPOLITAN POLICY CONTEXT LOCAL POLICY CONTEXT

Canals and the River Lee Navigation TR15 Canals and the River Lee Navigation Safety in Design TR16 Safety in Design Development at Stratford TR17 Development at Stratford Channel Tunnel Development

Walking and Cycling

TR18 Channel Tunnel Development

TR1 TR2 TR3

Planning Standards

New Pedestrian and Cycle Links Protection of Routes Cycle Routes

TR19 Planning Standards

Public Transport TR4 Safeguarding of Land TR5 Improvements as part of Development Proposals Development and Traffic TR6 Traffic, Access and Parking TR7 Car Parking TR8 Parking for People with Disabilities Roads TR9 TR10 TR11 TR12 TR13

Road Network Road Priorities Roads and Traffic Management Road Improvements New Roads


169

LT and their subsidiary companies and private operators, under contract to LT. BR and LT are trading companies under central government control. The Council can influence the decisions of these o rganisations through consultation, persuasion, and provision of facilities which assist and enhance ef f i c i e n t operation of public transport services.

Introduction 1.

Transport is about the movement of people and goods. It is a vital part of almost every social, recreational, commercial or business activity. An attractive and efficient transport system is essential for people to make the best use of the land and buildings and improve their environment.

2.

The Council is the local highway and t r a ffic authority and as such is able to play a major role in the development of local transport. In addition, it has power as a local planning authority, through its Unitary Development Plan, to control new development and relate it properly to the transport network. It may also allocate land for road improvements, parking, servicing and safeguarding for public transport.

Strategic Policies ST28 THE COUNCIL WILL SEEK TO ENSURE THAT ALL DEVELOPMENT IS APPROPRIATELY RELATED TO TRANSPORT INFRASTRUCTURE WHICH WILL SERVE ITS NEEDS. THE COUNCIL WILL ACTIVELY DISCOURAGE DEVELOPMENT IN INAPPROPRIATE LOCATIONS.

Justification 3.

The Council is responsible for all roads in Hackney, except for the A102(M) which is a Trunk Road controlled by the Department of Transport (DoT). A number of other roads in Hackney are ‘Designated’ by the DoT. Proposals which could affect traffic on these roads must be approved by the DoT.

4.

The Secretary of State for T r a n s p o r t rejected in 1990 the major road building proposals contained in the East London Assessment Study Report. The Council supports the view that major new roads are unsuitable for its area, as they usually lead to an increase in the use of private cars and hence congestion of the road system. They can also result in an increase in the general level of traffic pollution. Increased use of the car undermines the use and viability of public transport which is a practical means of reducing traffic and pollution levels.

6.

The Council recognises the need for all developments to be appropriately related to transport infrastructure which will serve their needs. Implementation of this principle will allow the Council to guide new development to locations which minimise the need for unnecessary car commuting or which permit the choice and use of more energy efficient public transport.

ST29 THE COUNCIL WILL SEEK TO ACHIEVE AN ADEQUATE AND EQUITABLE DISTRIBUTION OF JOB OPPORTUNITIES, SERVICES AND COMMUNITY FACILITIES THROUGHOUT THE BOROUGH, WHICH WILL REDUCE TRAVEL NEEDS AND BENEFIT THE LOCAL COMMUNITY AND ENVIRONMENT, BY PROTECTING AND ENHANCING THE BOROUGH’S MIXED LAND-USE CHARACTER. THE COUNCIL WILL ALSO SEEK TO IMPROVE ACCESSIBILITY WITHIN AND WITHOUT THE BOROUGH BY PUBLIC TRANSPORT.

5.

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The responsibility for public transport services within the Borough lies with BR, London Borough of Hackney Adopted UDP – June 1995

Justification 7.

8.

9.

The Council is concerned to ensure that all Hackney residents generally have the same level of access to jobs, services and community facilities. In seeking to achieve this objective through the UDP it acknowledges that action to address deficiencies is dependent upon the availability of resources, including finance and land, in what is a tightly built up and under-resourced Borough. In addition to encouraging appropriate new development throughout the Borough it is also essential to protect local employment areas, shops, community facilities, sports grounds, open spaces, nature conservation areas and leisure facilities. Car ownership in Hackney is relatively low, some public transport links are poor and many residents with childcare and other care responsibilities or those with a disability cannot venture far from home for the job or other services they require. Part of the answer to this objective is therefore to protect and enhance the essential elements of the existing mixed land use character of the Borough which developed when residents were much more dependent upon local jobs, services and facilities than they currently are.

10. Access can also be improved by easing the movement of people in ways which are not environmentally damaging. 11. In order to improve accessibility without new road building both within and beyond the Borough the Council strongly supports new public transport links such as the East London Line Extensions and the Chelsea-Hackney Line. The provision of new and improved bus services can also be of great benefit in improving accessibility.


ST30 THE COUNCIL WILL SUPPORT AND ENCOURAGE THE IMPROVEMENT OF PUBLIC TRANSPORT INCLUDING NEW TRANSPORT LINKS, BUS PRIORITY SCHEMES, IMPROVED INTERCHANGES AND ACCESS FOR PEOPLE WITH DISABILITIES.

Justification 12. A majority of Hackney residents are dependent on public transport for motorised journeys. This is particularly true for women, ethnic minorities and the e l d e r l y. Encouraging and supporting improvements to public transport will be beneficial in increasing mobility and access to employment opportunities, reducing car traffic congestion and pollution. 13. Improved transport links and local interchanges promote passenger convenience and usage. Within the Borough there are limited links and interchanges between various public transport modes and areas poorly served by public transport. Consequently, the Council will support and encourage new public transport schemes to exploit fully the links and interchanges with existing services to enhance passenger convenience and usage. 14. The use of bus services remains the most important non-pedestrian means of movement within the Borough. However, buses suffer from delay and congestion which reduce their attractiveness and reliability as well as their financial viability. The Council will support the provision of bus priority facilities as a means of improving the speed, reliability and accessibility of the bus services, of reducing the operating costs of bus operators, and of improving the efficient use of the Borough’s road network. Some of these measures will include more bus lanes, the use of electronic devices, provision of priority traffic signals, and exemption of buses from general traffic restrictions such as banned turns, 171

no-entries and one-way roads. The Council will also seek to enforce parking restrictions on bus lanes to enable the free flow of buses under the Road Traffic Act 1991 which became operational in 1993. 15. The Council also recognises that people with disabilities as well as people with prams or wheelchairs have special needs which should be taken into account in the design and building of public transport infrastructure, for example, the installation of lifts and dropped kerbs. The Council would wish to see these facilities provided to encourage wider use of public transport by people with disabilities and people with prams and wheelchairs.

ST31 THE COUNCIL WILL CONTROL THE PROVISION OF NON RESIDENTIAL OFF-STREET CAR PARKING IN ORDER TO RESTRAIN COMMUTING BY CAR.

Justification 16. The Council considers that traf f i c restraint through parking control is an important element in supporting its overall transport policy and should be discriminating according to agreed priorities and be seen to be fair. The Council believes that off-street car parking attracts long-stay commuters and is also an inefficient use of land. Priority for non-residential off-street car parking should be given to essential business users and shoppers. Within this context, non-residential off-street parking spaces would be managed in favour of short-term users, and need to relate to the operational needs of the businesses they serve.

ST32 THE COUNCIL WILL MANAGE AND IMPROVE THE EXISTING ROAD NETWORK TO PROVIDE A SAFE AND EFFICIENT SYSTEM OF ROADS TO SERVE

Justification 17. The Council believes that defining a road hierarchy and classifying roads according to their function provides a rational basis for the management of traffic and the control of development. Accordingly, the B o r o u g h ’s roads have been defined in terms of their hierarchy and function as to whether they are: 18. Strategic ro a d s which provide for through traffic, longer journeys and link the Borough with the Strategic London Road Network and the national road system. 19. Secondary roads which cater for through t r a ffic as their main function, provide links to Strategic roads and access to important shopping and industrial centres and are main bus routes. 20. Local distributor roads which provide access to secondary roads, for local traffic and access to buildings. 21. Local access roads which serve homes and workplaces. 22. This network enables the Council to achieve its wider transport objectives on roads and to direct traffic to those roads most appropriate to the journey being made. It allows traffic management and other measures to be used to direct traffic away from local roads and to confine it as much as possible to the designated network of strategic and secondary roads, thus facilitating environmental improvements in sensitive areas and improving safety for highway users. 23. Managing and improving the road system according to this principle of hierarchy and functions also enables the Council to establish a basis for the control of development on sites adjoining main t r a ffic routes and for the creation of environmental areas free of all but local traffic.

DIFFERENT FUNCTIONS.

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ST33 THE COUNCIL WILL SEEK TO PROVIDE SAFE AND

proposed green links connecting existing green chains and open spaces in the Borough.

CONVENIENT CONDITIONS FOR PEDESTRIANS INCLUDING PEOPLE WITH DISABILITIES, AND

ST34

CYCLISTS, BY PROVIDING APPROPRIATE FACILITIES AND BY SLOWING AND RESTRAINING

THE COUNCIL WILL SEEK TO RETAIN AND

TRAFFIC, AND WILL SEEK TO EXPAND THE

EXTEND LOCAL SERVICES, SHOPS AND

BOROUGH’S CYCLE ROUTE NETWORK.

EMPLOYMENT USES, IN ORDER TO REDUCE DEPENDENCE ON TRANSPORT (PARTICULARLY

Justification 24. Walking and cycling are important means of travelling to and from work and for leisure purposes within the Borough. In fact, taken together, both modes of travelling account for 45% of journeys made in the Borough. The Council is concerned that pedestrians, especially the elderly, the very young (and the adults who care for them) and people with disabilities and cyclists are particularly vulnerable and sustain proportionally higher rates of serious/fatal injuries. About 33% of all accidents involve pedestrians while 6% of accidents in Hackney involve cyclists. 25. While recognising the importance of walking and cycling, the Council is concerned that pedestrians and cyclists do so in safety and convenience with their vulnerability to high accident rates greatly reduced. In view of this the Council seeks to implement measures which will provide safe and convenient conditions for pedestrians and cyclists, including people with disabilities, through providing appropriate facilities and by slowing and restraining traffic. Measures such as widening of footpaths, provision of pedestrian refuges, cycle routes, dropped kerbs, traffic management schemes and t r a ffic calming measures, repairs to pavements and improvements to pedestrian crossings are all required and will be implemented. 26. The Council will seek to implement a network of signposted walks linking with those provided by adjoining Boroughs. Where possible these will share the route of London Borough of Hackney Adopted UDP – June 1995

PRIVATE TRANSPORT).

Justification 27. This policy is designed to ensure that local facilities and employment uses are available to all residents within reasonable walking and cycling distance. Retaining local facilities, shops and employment within a compact area is convenient and beneficial as it allows local needs to be satisfied within a walking or cycling distance. This is particularly important as a significant proportion of the resident population do not have access to the use of a car and are dependent on walking and cycling for most journeys, and for the less mobile residents, such as the elderly and people with young children, who may be unable to walk very far, or to carry shopping any distance. Reducing dependence on private transport will relieve the roads of traffic, improve the operation of public transport systems, conserve energy and reduce the danger and inconvenience experienced by vulnerable pedestrians and cyclists and enhance environmental amenity.

National Policy Context Planning Policy Guidance Note 13 28. Planning Policy Guidance Note 13 issued in March 1994 provides advice on how transport and land-use planning should be integrated. Its primary aim is to reduce growth in the length and number of motorised journeys; encourage alternative 173

means of travel which have less environmental impact and reduce reliance on the private car. To achieve this aim it advises local authorities to co-ordinate their policies for transport and other forms of development and adopt planning and land-use policies which promote development within urban areas or locate major generators of travel demand at, or in locations highly accessible by a range of travel options other than the private car. It further advises local authorities to strengthen existing centres which offer a range of services and facilities and maintain and improve choice of alternative forms of travel eg walking, cycling and public transport use. Parking provision should be limited where these are effective alternatives.

Regional Policy Context 29. Regional Planning Guidance for the South-East RPG9 recognises the link between transport, development and the environment and the contribution transport policy can make towards achieving other policy aims. It stresses that the transport system, at the local level, must ensure good accessibility for the region’s population to basic services and facilities and that it must be safe, secure and reliable.

Metropolitan Policy Context Strategic Planning Guidance 30. Strategic Planning Guidance for London (1989) sets out the Government’s approach for improving transport conditions in London. Its primary objective is to facilitate the development of transport systems which are safe, efficient and have proper respect for the 174

environment. Whilst recognising the essential contributions that London’s transport systems make towards meeting the capital’s needs and the beneficial e ffects they could have on further development and economic growth, the Government’s approach aims to improve traffic conditions, making best use of the Strategic Road Network, and tackling the worst aspects of congestion. It also aims to promote safe, efficient and attractive public transport services. Boroughs’ attention is drawn to further information about this approach contained in the Secretary of State for Tr a n s p o r t ’s Statement on “Transport in London”, circulated on 26 January 1989. The Statement reinforces the Strategic Guidance approach and explains that L o n d o n ’s transport system should respond to demand in ways which are safe and efficient and have proper respect for the environment, with new developments in the systems reflecting the needs of people who are frail, elderly or disabled. 31. With respect to public transport, Strategic Guidance indicates that the Government wants London to have safe, good and cost-effective public transport. Boroughs are advised to take account of the proposals in the Central and East London Rail Studies. One of the proposals from the Central London Rail Study from which London Borough of Hackney will benefit is the Chelsea-Hackney line. The route corridor of this Tube line has been safeguarded by the Department of Transport. Hackney could also be affected by East-West CrossRail. 32. The vital contributions that bus, coach and taxi services make to the social and economic life of London is recognised. 33. With regard to London’s roads, Strategic Guidance states that the Government’s aim is to promote the provision of a safe and efficient road system for London that would encourage vehicles to make the London Borough of Hackney Adopted UDP – June 1995

fullest possible use of the Strategic Road Network of trunk and designated roads in preference to seeking alternative routes through unsuitable streets and residential areas. 34. Strategic Guidance also supports traffic management measures which achieve better use of the existing road system to improve economic, social and environmental conditions in London, and to improve safety and smoother traffic flows. To ease congestion and improve conditions on London’s roads the Government is implementing a series of major new traffic management measures and parking controls, including a Priority Route Network, commonly known as ‘Red Routes’ controlled by the Traffic Director for London. Strategic Guidance recognises that parking controls are influential in combating congestion, particularly that caused by car commuting. Parking controls therefore should be used to limit commuting and assist traffic flows. 35. Boroughs’ road improvement programmes, traffic management measures and parking arrangements should be included in their UDP. Road programmes should be classified in accordance with the hierarchy of primary, secondary, local distributor and local access roads. Boroughs should consider the traf f i c implications of proposed developments and take steps to accommodate traff i c suitably. 36. The Strategic Guidance also supports the principle of Strategic Cycle Routes as developed by LPAC and the London Cycling Forum. 37. Boroughs should provide suitable and adequate on and off-street parking that balances local needs with the need to facilitate the movement of traf f i c , especially on the Strategic London Road Network.


Strategic Planning Advice 38. Strategic Planning Advice for London underlines the necessity for a balanced and integrated approach to transport planning which should offer economic growth, improve accessibility and satisfy safety and environmental objectives. Advice emphasises the role of public transport, cycling and walking and promotes traffic restraint measures particularly for inner London. I t advocates a transport strategy based on modernisation, and substantial augmentation of the rail and Underground systems, comprehensive traffic management and no capacity increases on the inner and central London road network; more vigorous restraint of the use of cars for journeys to central London and other busy areas; management of and selective improvements to the orbital road network in outer London; and the improvement of the environment for pedestrians and cyclists.

Local Policy Context 39. The 1991 census indicates that 62% of households in Hackney do not have access to a car and in some wards this figure approaches 70%. This relatively low car ownership means that Hackney residents are heavily dependent on public transport for travel to work and other purposes. 40. Public transport services are inadequate and because of this Hackney residents do not have adequate access to jobs and facilities available in London as a whole. This reinforces the disadvantage experienced especially by women, black and ethnic minorities and unemployed people. 41. Walking and cycling account for 45% of all journeys by Hackney residents. 175

Indeed, 70% of shopping trips are made entirely on foot. Pedestrians and cyclists are at serious risk from motor traff i c . Three out of 10 traffic accident casualties are pedestrians. Many streets are dominated by heavy traffic and some footpaths are in poor condition. 42. Over 10% of people in Hackney are a ffected by physical disabilities which restrict their ability to move around. These people do not have access to the public transport system because of a combination of personal mobility handicaps and the physical design of public transport systems. There are some mobility bus routes in the Borough. 43. There are no U n d e rground services within the Borough although on and beyond its boundaries there are 12 Tube stations which have catchment areas servicing the Borough. The Borough stands to benefit from proposals by British Rail and London Underg r o u n d Limited to build new rail and Tube lines in London. The proposed new lines include extensions to the East London line through Dalston to Highbury and Islington, and the Chelsea-Hackney line. When implemented they would have a major impact in Hackney in improving accessibility to work and other opportunities in London for Hackney residents and workers and in contributing to a restriction of car-borne commuter t r a ffic. The East-West Cr o s sRail will provide good interchange facilities with LUL and BR Services at Liverpool Street station which has a rail catchment area servicing much of the Borough. In support of these proposals land is being safeguarded in the Unitary Development Plan for the route of the Chelsea-Hackney line, and protected for the extension of the East London line. The Council’s approach at key sites, such as Bishopsgate and Dalston Town Centre, is that new development and new railway infrastructure must accommodate each other, neither should impede the other. 176

Thus transport safeguarding should not impede property development and the latter must have due regard to the former. 44. The use of bus services remains the most important motorised means of movement within the Borough. However, the bus services suffer from traffic congestion and delay. 45. British Rail routes include the North London line, and the suburban We s t Anglia lines through Stamford Hill and Clapton to Liverpool Street station. The Barking to Gospel Oak branch of the North London line serves the northern residential fringe of the Borough. There is also the busy commuter line through Finsbury Park and Old Street to Moorgate (the Great Northern line). These services provide access to jobs and for other journeys for some Hackney residents and workers, but from many parts of the Borough travel to the West End and access to the U n d e rground network generally is poor. In addition, a number of British Rail services do not operate throughout the week. In particular, London Fields and Cambridge Heath stations are only open during weekday peak hours; there are only limited services linking the Borough with the Lee Valley line, especially during peak hours, and the Great Northern line to Moorgate is closed late evenings and all weekend. 46. Although some improvements have been made, some train services remain infrequent, and generally unattractive to use, particularly outside working hours. Links with other public transport systems, particularly buses, are poorly publicised. In view of the foregoing, the Council will continue to press for improvements to rail services, including an increase in service frequency on the North London Line to 4 trains per hour throughout its length, and the development of appropriate complementary services over parts of its length.


47. Road transport suffers seriously from traffic congestion. Cars, and particularly commuters, are the major contributors to road congestion which delays buses and other essential vehicles. Many of Hackney’s main roads are unable to cope with the volume of traffic passing through them. The consequence is that ‘ratrunning’ is widespread and getting worse as many vehicles try to avoid congested main roads by taking unsuitable residential streets, causing danger and nuisance to many neighbourhoods. 48. O ff-street and on-street car parking spaces are limited in the Borough. As a result, parking problems are widespread and occur in many residential areas, within shopping centres, and around employment areas, especially South Shoreditch. Illegally parked cars pose unnecessary accident risks to pedestrians and cyclists and cause increased congestion and effectively reduce the capacity of the road network. Wa i t i n g restrictions are poorly enforced, causing difficulties to residents, local businesses, pedestrians and cyclists, and undermining effective parking policies. 49. Central government is committed to seeking better use of the existing capacity of the strategic road system through the imposition of major new traff i c management measures, especially the Red Route schemes. Some main roads in the Borough such as City Road, Old Street, Shoreditch High Street, and Commercial Street are included in the Red Route pilot scheme. The following routes were designated Red Routes on 11 June 1992: • A10 between the Hackney/City of London boundary and the Hackney/Haringey boundary. • A102 from its junction with Lower Clapton Road (A107) to its junction with East Cross Route (A102(M)). • A105 from the Hackney/Haringey boundary to its junction with Seven Sisters Road (A503). London Borough of Hackney Adopted UDP – June 1995

• A106 from the east side of its junction with East Cross Route (A102(M)) to the Hackney/Waltham Forest boundary. • A107 from its junction with Stamford Hill (A10) to its junction with Urswick Road (A102). • The southbound side of the A501 City Road from its junction with Wharf Road to its junction with the A5201 Old Street. • A503 from its junction with Green Lanes to the Hackney/Islington/ Haringey boundary. • A1202 between the A5201 Old Street and the Hackney/Tower Hamlets boundary including Curtain Road from its junction with Old Street (A5201) to its junction with Great Eastern Street (A1202) and Great Eastern Street. • A5201 Old Street from its junction with City Road (A501) to its junction with Kingsland Road and Shoreditch High Street (A10). The Red Route Scheme involves strict enforcement of the regulations covering parking, waiting and loading restrictions on the priority routes in order to relieve congestion, reduce accidents and improve travel time and the environment. While the Council welcomes stricter enforce-ments of these regulations, it is generally concerned that the proposals do not increase the level of through traffic in the Borough; that the interests of business frontages are protected; and that extra road capacity created by the schemes is used to relieve adjoining residential roads and to improve conditions for buses, pedestrians and cyclists. The Council will prepare a statement of its proposals for the implementation and operation of the priority routes in accordance with the requirements of the Road Traffic Act 1991 and in the form specified by the Traffic Director for London. 177

POLICIES

JUSTIFICATION

Walking and Cycling TR1 New Pedestrian and Cycle Links THE COUNCIL WILL REQUIRE THE PROVISION, WHERE APPROPRIATE, OF NEW PEDESTRIAN AND CYCLE LINKS THROUGH DEVELOPMENT SITES AND OPEN SPACES, ESPECIALLY WHERE THESE WILL PROVIDE LINKS TO EXISTING ROUTES.

Walking and cycling account for 45% of all journeys made in Hackney and are of growing importance as health and leisure activities. As such the Council seeks to take practical measures to encourage and support such activities through expanding existing networks by providing new links wherever possible. Development sites and open spaces provide the opportunity for establishing new pedestrian and cycle links to existing routes. These links will enhance both the safety and the attractiveness of walking and cycling. (See Policy OS6).

TR2 Protection of Routes THE COUNCIL WILL NOT NORMALLY PERMIT DEVELOPMENTS WHICH SEVER EXISTING FOOTPATHS, BRIDLEWAYS, RIGHTS OF WAY OR CYCLE ROUTES, UNLESS AN ACCEPTABLE ALTERNATIVE ROUTE IS MADE AVAILABLE.

The Council recognises the value of walking and cycling for local travel and the demand for longer distance cycle routes to work. Because these routes should be direct, developments should not obstruct or cut across established footpaths, bridleways or cycle routes, unless an appropriate alternative route is provided. If an alternative route is to be provided it should not cause undue diversion or lengthening or otherwise worsen conditions for users. The Council considers that safety, amenity and convenience for people walking and cycling may be improved, for example, by restricting vehicle access. This applies especially during busy periods to shopping areas and street markets where there is a concentration of pedestrian activity. It is also appropriate to restrict motor vehicle access in parks, open spaces and residential areas. Land may be required within development sites to improve the footpath and cycle network. Buses, taxis, cyclists and vehicles for people with disabilities may exceptionally be permitted to use pedestrian priority streets provided that they give way to pedestrians.

178


POLICIES

JUSTIFICATION

TR3 Cycle Routes THE COUNCIL WILL PROMOTE THE PROVISION OF CYCLE FACILITIES, AND IN PARTICULAR WILL ENSURE THE IMPLEMENTATION LOCALLY OF AN INTEGRATED CYCLE NETWORK FOR LONDON.

The Borough has an existing network of cycle routes. Nevertheless, with cycling becoming more popular, the implementation locally of a cycle network, parking facilities, cycle priority lanes and other safety measures would encourage more people to take to cycling which is both healthy and environmentally friendly. The council will encourage provision of secure cycle parking facilities at railway stations and other transport interchanges, in town centres, at public buildings and other attractors of significant numbers of people, and in major new developments. The Council endorsed the principle of a London Strategic Cycle Route Network as developed by London Planning Advisory Committee (LPAC) and the London Cycling Forum, and which is supported by Strategic Guidance. The implementation locally of the Strategic Cycle Route Network will establish a comprehensive and beneficial network of cycle routes both within and outside the Borough, linking with cycle routes in adjoining Boroughs. The Council will liaise with other Boroughs in order to ensure an integrated network.

Public Transport TR4 Safefguarding of Land THE COUNCIL WILL SAFEGUARD LAND SHOWN ON THE PROPOSALS MAP FOR PUBLIC TRANSPORT USE.

There are no Un d e rground services within Hackney. The proposals to extend the East London Line in the south and to Highbury and Islington in the north via Dalston, and to build a new tube line from Chelsea to Hackney, are welcome new investments which the Council will support. The Chelsea-Hackney line and the extended East London Line will provide valuable commuter services for Hackney residents and workers, assist in the reduction of demand for car borne journeys, improve and enhance the attractiveness of development sites in Hackney (especially at Dalston and


179

POLICIES

JUSTIFICATION

Bishopsgate) for retail, housing, business and other economic developments, and improve access for Hackney people to jobs and the wider labour markets in London. In addition they would provide interchange facilities with other LT/BR services at Dalston, Hackney Central, Bishopsgate and Highbury and Islington. The Council will implement the safeguarding directions issued by the Department of Transport in respect of the Chelsea-Hackney line in order to promote this major public transport initiative. Equally, the Council will seek to protect the integrity of the land required for the northward extension of the East London line from Shoreditch (Bishopsgate) to Dalston strategic centre. The Council will not permit developments which will jeopardise their route corridors. The safeguarded and protected route corridors are shown on the proposals map. In supporting these major pubic transport proposals the Council will seek measures which would secure full accessibility for all to stations, rolling stock and public transport infrastructure, including the provision of proper public transport interchange facilities.

TR5 Improvements as part of Development Proposals IN CONSIDERING PROPOSALS FOR DEVELOPMENT OF LAND ADJACENT TO RAILWAY STATIONS OR BUS STOPS, OR PROPOSALS REQUIRING PUBLIC TRANSPORT ACCESS, THE COUNCIL WILL SEEK IMPROVEMENTS TO PUBLIC TRANSPORT INFRASTRUCTURE OR SERVICES WHICH ARE APPROPRIATE TO THE SCALE OF THE PROPOSED DEVELOPMENT AND THE NEEDS OF THE LOCALITY. APPROPRIATE IMPROVEMENTS COULD INCLUDE: (A) IMPROVEMENTS TO STATIONS AND INTERCHANGE FACILITIES;

180

New developments should be designed in ways that take advantage of public transport and encourage people to use the public transport system. Safe and convenient access and boarding points, direct routes to bus stops and railway stations, adequate information and sheltered waiting areas with seats, improved lighting and security measures, and easy interchange between different transport modes and routes contribute to the overall ease of use of public transport for all, including people with disabilities, childcare responsibilities and the elderly. The Council will seek improvements in these areas as over London Borough of Hackney Adopted UDP – June 1995

POLICIES (B) SAFE AND CONVENIENT ACCESS BY PEOPLE WITH DISABILITIES AND CHILD CARE RESPONSIBILITIES; (C) DIRECT PEDESTRIAN ROUTES TO BUS STOPS AND RAILWAY STATIONS;

JUSTIFICATION

60% of its residents rely on public transport. In cases where improvements are sought as a benefit in connection with a grant of planning permission, failure to provide benefits not related to the development, or necessary to the grant of planning permission would not constitute grounds for refusal.

(D) PROVISION OF SAFETY AND SECURITY MEASURES AND PROPER LIGHTING; (E) PROVISION FOR PUBLIC TRANSPORT USERS OF SEATS, SHELTERS, TOILETS, CYCLE

In respect of BR stations the Council will seek to fund a number of improvement schemes including direction signs, resurfacing of car parks and improvement of footways.

PARKING AND PASSENGER INFORMATION INCLUDING DIRECTIONAL SIGNING; (F)

PROVISION OF PUBLIC TRANSPORT (BUS AND TAXI) BOARDING AREAS.

Development and Traffic TR6 Traffic, Access and Parking IN CONSIDERING DEVELOPMENT PROPOSALS THE COUNCIL WILL TAKE ACCOUNT OF TRAFFIC GENERATION AND ITS IMPACT ON CONGESTION AND THE PRESENT AND POTENTIAL AVAILABILITY OF PUBLIC TRANSPORT AND ITS CAPACITY TO MEET INCREASED DEMAND. THE COUNCIL WILL NOT PERMIT DEVELOPMENTS WHERE TRAFFIC GENERATED WOULD RESULT IN: (A) UNACCEPTABLE IMPACT ON OTHER ROAD USERS INCLUDING PEDESTRIANS AND CYCLISTS;

It is necessary to control development which generates traffic in order to preserve capacity and avoid congestion on relevant road and public transport networks and in order to ensure that danger to other road users and vulnerable pedestrians and cyclists is prevented. Access arrangements should be designed to minimise obstruction and unreasonable delay, especially to public transport. As the defined road network carries important traffic flows, delay and obstruction to traffic moving on these roads should be avoided.

(B) OBSTRUCTION TO ACCESS BY EMERGENCY VEHICLES; (C) INTERFERENCE WITH PUBLIC TRANSPORT OPERATIONS; (D) MANOEUVRING, PARKING AND LOADING WHICH SERIOUSLY OBSTRUCTS THE FREE FLOW OF TRAFFIC ON THE DEFINED STRATEGIC, SECONDARY AND LOCAL DISTRIBUTOR ROAD NETWORK.


181

POLICIES

JUSTIFICATION

WHERE APPROPRIATE THE COUNCIL WILL ENTER INTO LEGAL AGREEMENTS TO: (A) IMPROVE ROAD AND PEDESTRIAN ACCESS TO DEVELOPMENT SITES; AND (B) CONTROL THE NUMBER AND FREQUENCY OF VEHICLE MOVEMENTS FROM DEVELOPMENTS WHICH GENERATE HEAVY GOODS VEHICLE TRAFFIC.

TR7 Car Parking THE COUNCIL WILL NORMALLY ONLY PERMIT CAR PARKING PROPOSALS WHICH SATISFY PARKING STANDARDS AND: (A) ARE ESSENTIAL TO THE OPERATION OF A DEVELOPMENT PROPOSAL; OR (B) SERVE THE NEEDS OF LOCAL RESIDENTS OR LOCAL BUSINESSES WITHIN THE SHOPPING CENTRES AND DEFINED EMPLOYMENT AREAS SHOWN ON THE PROPOSALS MAP. THE COUNCIL WILL OPPOSE CAR PARKING WHICH RESULTS IN THE USE OF CARS AS AN ALTERNATIVE TO PUBLIC TRANSPORT. THE CAR PARKS SHOWN ON THE PROPOSALS MAP WILL BE SAFEGUARDED.

Car parks which attract the long stay commuter generate peak hour traffic which leads to congestion that delays public transport and undermines its financial v i a b i l i t y. Long stay car parking is also an inefficient use of land. Similarly, inadequate car parks may lead to on-street parking congestion. For these reasons, car parking should relate to the operation of the business which it serves. The Planning Standards Chapter contains appropriate standards for parking provision. Within the shopping and industrial areas shown on the proposals map, car parks are proposed for essential business and shopper use. These car parks will be managed to favour short term users. Parking for residents is necessary in order to minimise traffic congestion. If and when new parking standards are issued by the Government these will be adopted by the Council as the most up to date statement on parking in London.

TR8 Parking for People with Disabilities THE COUNCIL WILL NORMALLY REQUIRE NEW DEVELOPMENTS (SUCH AS SHOPS, HOUSING, INDUSTRY, OFFICES, HEALTH CENTRES, SCHOOLS, ENTERTAINMENT CENTRES, HOTELS, CINEMAS, THEATRES, WAREHOUSES) TO PROVIDE APPROPRIATE PARKING ARRANGEMENTS FOR PEOPLE WITH DISABILITIES.

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The layout of developments must not exclude people with disabilities from community life. Many people with disabilities are either unable or have extreme difficulties in using conventional public transport. While this is the case, private car travel can be the only practical option available. The provision of London Borough of Hackney Adopted UDP – June 1995

POLICIES

JUSTIFICATION

car parking for people with disabilities is therefore essential. For this reason, the Council will require dedicated car parking provision for people with disabilities.

Roads TR9 Road Network THE COUNCIL WILL MANAGE TRAFFIC AND CONTROL DEVELOPMENT TO MAKE EFFICIENT USE OF THE STRATEGIC, SECONDARY AND LOCAL DISTRIBUTOR ROAD NETWORK SHOWN ON THE PROPOSALS MAP.

The Council has defined a hierarchy of roads in order to help locate developments where they are properly served, and to provide a basis for the Council’s road improvement programmes, traffic management measures and parking arrangements. This hierarchy of roads is related to the Strategic London Road Network and is based on roads shown in the “Greater London Development Plan”. The categories of road are defined as follows: •

Strategic roads provide for longer journeys and link London with the national road systems (e.g. A102(M)).

•

Secondary roads provide links with strategic roads, access to shopping and industrial areas, carry short and medium distance traffic, and main bus routes (e.g. Green Lanes, Mare Street).

•

Local distributor roads provide for traffic moving between the secondary road network and local neighbourhoods (e.g. Stoke Newington Church Street, Whiston Road).

This network enables road traffic control through management and priority measures, and it assists identification of areas where through traffic should be restricted to protect local amenity. The remaining roads are local access roads which serve homes and work places.


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POLICIES

JUSTIFICATION

TR10 Road Priorities IN RESPECT OF DEVELOPMENTS COVERING LARGE AREAS OF LAND THE COUNCIL WILL NORMALLY REQUIRE THE ROAD NETWORK TO SATISFY POLICY EQ4 AND TO HAVE REGARD TO: (A) PEDESTRIANS (PARTICULARLY THOSE WITH DISABILITIES AND CHILD CARE RESPONSIBILITIES) AND CYCLISTS; (B) ROAD SAFETY; (C) MOVEMENT AND ACCESS FOR EMERGENCY VEHICLES;

The Council recognises that developments covering large areas of land will normally require new access roads, and appropriate parking and servicing facilities, and will need to link into and form a part of the wider road network in the Borough. These developments may generate increased traffic flows with potentially significant disbenefits to other road users and the environment. Careful design and layout will help to ensure that the detrimental effects of large developments are minimised.

(D) PUBLIC TRANSPORT OPERATIONS; (E) SERVICING EXISTING LAND USES AND DEVELOPMENT SITES; (F)

EFFICIENT CIRCULATION OF LOCAL TRAFFIC;

(G) MOVEMENT OF THROUGH TRAFFIC WITHOUT DETRIMENT TO THE ENVIRONMENT.

In respect of these developments, the Council will seek to ensure that parking and servicing areas are laid out so that they are not visually intrusive or impact adversely on local amenity. Efficient circulation and the safety and security of other road users will be important considerations in the design and layout of access roads. Where appropriate and reasonable, the Council will seek the allocation of land within the development to link up existing roads, and pedestrian and cycle links, to ensure that the development forms an integral part of the built form of the Borough.

TR11 Roads and Traffic Management THE COUNCIL WILL PROMOTE A PROGRAMME OF TRAFFIC MANAGEMENT SCHEMES AND TRAFFIC CALMING MEASURES WHICH IMPROVE ROAD SAFETY AND THE ENVIRONMENT.

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A programme of traffic management schemes and traffic calming measures is necessary in order to limit the effects of through traffic on shopping, residential and other sensitive areas, to reduce noise and pollution and to improve s a f e t y, particularly for pedestrians and cyclists. Through its Transport Policy and Programme, the Council will identify and implement programmes of traffic management schemes and traffic calming measures to improve road safety, the operation of public road transport, and the environment. The TPP sets out the Council’s broader transport policies and forms the basis of its bids to the Department of Transport for funding to pursue its transport objectives. London Borough of Hackney Adopted UDP – June 1995

POLICIES

JUSTIFICATION

TR12 Road Improvements THE COUNCIL WILL FAVOURABLY CONSIDER ROAD IMPROVEMENT PROPOSALS WHICH: (A) IMPROVE ROAD SAFETY; (B) SERVE DEVELOPMENT SITES; (C) ASSIST PUBLIC TRANSPORT OPERATION; IN IMPLEMENTING ROAD IMPROVEMENT SCHEMES THE COUNCIL WILL ONLY USE LAND: (D) WITHIN EXISTING HIGHWAY LIMITS; OR (E) WITHIN PROPOSED DEVELOPMENT SITES; OR (F)

WITHIN THE ROAD SAFEGUARDING LINES SHOWN ON THE PROPOSALS MAP.

Limited road widening and improvements are necessary to serve development sites and, where appropriate, to improve the road network where there is a severe accident problem or delays to public transport. Although road improvements within the highway limits do not normally require planning permission, the Council will consult those affected and ensure that road improvements respect environment and conservation policies. To avoid blight, road improvements should not take land outside highway limits or proposed development sites, except where a road safeguarding line is shown on the proposals map. No road widening has been safeguarded unless there is a realistic programme for implementation. Some traffic management schemes such as the Red Routes are imposed upon the Council by the Department of Transport. This Council will seek to implement these schemes so as not to increase the levels of through traffic or jeopardise the trade of affected shops and other businesses premises, and will seek improvements to public transport facilities such as bus lanes.

TR13 New Roads THE COUNCIL WILL OPPOSE NEW ROADS AND ROAD IMPROVEMENTS WHICH INCREASE THE CAPACITY OF THE ROAD NETWORK TO CARRY THROUGH TRAFFIC.


Hackney is detrimentally affected by through traffic, mainly commuter cars going to central London. Experience in other parts of London shows that increased road capacity is usually taken up by additional car commuting, causing danger and congestion which is detrimental to residential and environmental amenity. It is the Council’s view that public transport should be improved to cater for commuting.

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POLICIES

JUSTIFICATION

Helicopter Landing Sites TR14 Helicopter Landing Sites THE COUNCIL WILL RESIST THE PROVISION OF TAKE OFF AND LANDING PLACES FOR HELICOPTERS EXCEPT WHERE THEIR OPERATION WOULD NOT ADVERSELY AFFECT THE ENVIRONMENT.

In considering applications for helicopter landing sites, the Council will need to be satisfied that the helicopter noise standards and the safety requirements of the Civil Aviation Authority are fully met. The Council recognises that helicopters can be intrusive and adversely affect the environment.

Canals and the River Lee Navigation TR15 Canals and the River Lee Navigation THE COUNCIL WILL FAVOURABLY CONSIDER PROPOSALS WHICH SUPPORT LEISURE AND FREIGHT MOVEMENT ON THE REGENTS CANAL AND RIVER LEE NAVIGATION SUBJECT TO OTHER POLICIES IN THIS PLAN.

The Regents Canal and the River Lee Navigation Hackney Cut waterways are at present used for passenger and freight movement and they provide leisure and recreation facilities. The Council believes that these waterways hold much potential for further use and have a significant role to play in the movement of passengers and freight and in helping to meet leisure and recreation deficiencies in the Borough. In encouraging these developments, the Council will attach an informative to planning permissions in respect of waterside sites requesting contractors to use water borne deliveries of plant and materials, wherever possible, during the construction process. This is in accord with Strategic Guidance which recognises the environmental benefit which can be derived in encouraging and supporting use of waterways. There is grant aid available under the Transport Act 1981 for investment which transfers particular freight flows to water where this would remove heavy lorries from unsuitable roads.

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JUSTIFICATION

Safety in Design TR16 Safety in Design THE COUNCIL WILL TAKE ACCOUNT OF SAFETY WHEN CONSIDERING PEDESTRIAN AND CYCLE ROUTES, ACCESS AND ENTRANCES TO AND WITHIN DEVELOPMENTS AND WILL NORMALLY REQUIRE: (A) CLEAR LINES OF SIGHT; (B) AVOIDANCE OF DEAD ENDS; (C) VISIBILITY SPLAYS ON CORNERS; (D) ADEQUATE LIGHTING; (E) LEVEL ACCESS AT PEDESTRIAN CROSSING POINTS.

Safety and security of people walking, especially at night, are important considerations in the design and layout of developments. Proper lighting in car parks and walkways and the opportunity to oversee entrances and public areas will assist this. (See Policy HO19). People on foot will also feel safer if they have a clear view ahead, without hidden corners, dead ends or blind alleys where there is no opportunity to avoid danger. Provision of level access at pedestrian crossing points will benefit particularly the elderly, people with physical disabilities as well as people with prams or pushchairs.

Development at Stratford TR17 Development at Stratford THE COUNCIL OPPOSES ANY DEVELOPMENT AT STRATFORD RELATED TO THE CHANNEL TUNNEL RAIL LINK THAT WOULD CAUSE A SIGNIFICANT INCREASE IN CAR AND FREIGHT TRAFFIC ON HACKNEY ROADS.

The proposals for an International Passenger Station at Stratford and the substantial development associated with it could lead to a significant increase in car and freight traffic passing through Hackney. The Council acknowledges Stratford’s good public transport links and the fact that these links will be used to service new development. The Council remains concerned, however, that developments may still be heavily car-based and that consequential increases in traff i c levels in Hackney will cause further congestion and a decrease in the quality of the environment and accessibility in Hackney.

Channel Tunnel Development TR18 Channel Tunnel Development IN CONSIDERING ANY PROPOSALS FOR THE CHANNEL TUNNEL RAIL LINK, SO FAR AS THEY AFFECT THE BOROUGH, THE COUNCIL WILL SEEK TO: London Borough of Hackney Adopted UDP – June 1995

The Channel Tunnel Rail Link between Stratford and St. Pancras will be in a tunnel beneath the Borough. The proposal to route the rail link underneath the Borough will 187

POLICIES (A) MINIMISE ANY ADVERSE EFFECTS FROM CONSTRUCTION AND OPERATION UPON LIVING AND WORKING CONDITIONS IN TERMS OF NOISE, VIBRATION, DISTURBANCE, TRAFFIC AND VISUAL INTRUSION; (B

SAFEGUARD EXISTING PUBLIC TRANSPORT SERVICES, NOTABLY ON THE NORTH LONDON LINE;

(C) ENSURE PROVISION OF ADEQUATE COMPLEMENTARY PUBLIC TRANSPORT SERVICES.

JUSTIFICATION

cause significant local environmental disbenefits. Problems such as noise, vibration, settlement, disturbance, traffic and visual intrusion need to be minimised for the benefit of local residents. The Council will address the local land-use and transport implications of the proposal and seek to ameliorate any adverse effects both during and after construction for the benefit of local residents. Note: See Proposal 276.

Planning Standards TR19 Planning Standards THE COUNCIL WILL SEEK TO ENSURE THAT ALL DEVELOPMENTS ARE SATISFACTORY IN TERMS OF: (A) ACCESS, LAYOUT AND CIRCULATION; (B) VISIBILITY SPLAYS FOR DRIVERS AND PEDESTRIANS; (C) SIGHT LINES; (D) OFF-STREET OPERATIONAL PARKING AND SERVICING INCLUDING DEDICATED SPACES FOR MOTOR CYCLES AND CYCLE PARKING; (E) PARKING FOR PEOPLE WITH DISABILITIES; (F)

The Council is concerned to ensure that development is carried out in accordance with current best practice in order to help secure and improve the amenity of the Borough and its residents. It has set out the general criteria upon which it will assess development proposals, in order to ensure that they can be taken into account when it is considering planning applications. Detailed standards on parking, turning arrangements, sight lines and visibility splays are set out in the Planning Standards chapter, while standards on other matters are contained in the Supplementary Planning Guidance.

VISUAL SCREENING OF PARKING AND SERVICING AREAS;

(G) SAFE CIRCULATION OF TRAFFIC AND PEDESTRIANS; (H) LEVEL ACCESS AT PEDESTRIAN CROSSING POINTS; (I)

CONTROLLED HOURS OF ACCESS;

(J)

THE IMPACT ON THE TOWNSCAPE AND THOSE POLICIES SET OUT IN THE ENVIRONMENTAL QUALITY CHAPTER.

Note: The Council’s Planning Standards chapter includes detailed standards, such as visibility splays and sight lines necessary for a clear view of the road when entering and leaving sites. The chapter includes advice on, for example: maximum levels of operational parking, provision for various categories of development, parking requirements for people with disabilities and cycles. Dimensions of access points, and access for emergency and refuse collection vehicles are contained in the Supplementary Planning Guidance. Where the Council is expected to maintain roads within a site, a legal requirement is necessary under S38 of the Highways Act 1980. This requires roads and footways to be constructed to the standard specified by the Council.

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Major Public Transport Proposals in Hackney


189

Priority (Red) Routes

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Chapter 7

Retailing and Town Centres INTRODUCTION STRATEGIC POLICIES NATIONAL POLICY CONTEXT REGIONAL POLICY CONTEXT METROPOLITAN POLICY CONTEXT

Shopfronts and Upper Floors R13 Shopfronts and Shop Sign R14 Access to Upper Floors R15 Use of Upper Floors Street Markets R16 Street Markets R17 New Street Markets Planning Standards R18 Planning Standards

LOCAL POLICY CONTEXT New Development R1 R2

R3 R4 R5

Town Centres New Shopping Development and the Rebuilding or Extension of Existing Shops Development within Shopping Frontages Local Shops Car Tyre/Exhaust/Service Centres; Self-Drive and Chauffeur Driven Car Hire Outlets

Changes of Use R6 Core Shopping Areas R7 Changes of Use in Shopping Centres R8 Protecting Local Shops R9 Redundant Shops Outside Shopping Centres R10 Cafes, Restaurants, Wine Bars and ‘Take-Away’ Hot Food Shops R11 Mini Cab and Driving School Offices R12 Amusement Arcades, Amusement Centres, Video Game Centres and Pool Halls London Borough of Hackney Adopted UDP – June 1995

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facilities such as shops, of f i c e s , entertainment and community uses. The Council, therefore, as a general principle, would support and encourage the provision of additional shopping facilities which will enhance the vitality and viability of these centres.

Introduction 1.

Shopping is an important feature of e v e r y o n e ’s life. The provision of an adequate and accessible range of shops is essential if an area is to be an attractive place to live and work. In Hackney there is a wide range of shops and shopping facilities. There are also opportunities for further development of shops and shopping facilities. Investment in H a c k n e y ’s shopping centres will off e r opportunities for better facilities for shoppers, more jobs, improved business prospects and enhancement of the focal points for much day-to-day activity.

ST36 THE COUNCIL WILL PROTECT THE RETAIL FUNCTION OF LOCAL SHOPPING CENTRES AND PARADES TO ENSURE CONTINUED LOCAL ACCESSIBILITY TO KEY SHOPS.

Justification 3.

Strategic Policies ST35 THE COUNCIL WILL MAINTAIN A HIERARCHY OF SHOPPING CENTRES IN WHICH IT WILL ENCOURAGE THE PROVISION OF A WIDE RANGE OF SHOPPING FACILITIES, SERVICES, AND LEISURE AND ENTERTAINMENT FACILITIES TO MEET THE NEEDS OF ALL SECTIONS OF THE

Protection of the retail function of local shopping centres and parades is an important element of the Council’s shopping strategy to ensure availability of essential local shopping facilities, providing for day-to-day needs, to all residents within reasonable walking distance. This is particularly important for the less mobile members of the community: the old and infirm; people with disabilities; those with young children to care for (particularly women who have the main responsibility for shopping and for childcare) and who may wish not to travel far to satisfy shopping needs.

COMMUNITY.

ST37

Justification 2.

The Borough is well served by a hierarchy of shopping centres. Maintaining support for the existing hierarchy accords with Strategic Guidance and Advice and provides an appropriate framework for focussing new investment and assisting their regeneration, consolidation and growth. Because these centres are accessible by all modes of transport, they are convenient to all sections of the population and therefore serve as focal points for their locality. Because of their accessibility, the Council considers that these centres are suitable for the provision of a wide range of shopping


THE COUNCIL WILL SEEK TO PRESERVE AND ENHANCE THE ACCESSIBILITY, ATTRACTIVENESS, VITALITY AND CONVENIENCE OF SHOPPING CENTRES.

Justification 4.

The Borough’s main shopping centres lie astride public transport routes, but suffer from increased traffic congestion, a poor environment and an inadequate range of shops and shopping facilities. The Council’s policy has been to support and encourage improvements to these centres and this has focussed on new shopping developments, improved facilities for shoppers, traffic management schemes 193

and environmental improvements. The Council will continue to demonstrate its confidence in its shopping centres by preserving gains which would have already been made and by encouraging measures to further enhance the accessibility, attractiveness, vitality and viability of its shopping centres.

between different types of shopping provision, by avoiding unnecessary regulation of shopping development, while taking account of the important contribution retail activity can make to securing the vitality and viability of town centres. It advises that it is not the function of the planning system to preserve existing commercial interests or to inhibit competition between retailers or between methods of retailing, nor should the local authority regulate changes in the supply of retail services, unless interests of acknowledged importance would be adversely affected.

ST38 THE COUNCIL WILL ENSURE THAT MAJOR RETAIL DEVELOPMENT INCLUDING FOOD SUPERSTORES ARE ACCESSIBLE BY PUBLIC TRANSPORT AND WILL NOT PREJUDICE THE VITALITY AND VIABILITY OF THE BOROUGHS EXISTING TOWN CENTRES.

7.

PPG6 states that the public needs a wide range of shopping facilities and benefits from competition between them. It acknowledges that town centres provide a convenient location for developments such as shops, leisure facilities and restaurants, entertaiment and the arts, offices and residential accommodation, and that the retailing function should continue to inderpin such centres. It emphasises the importance of sustaining or enhancing the vitality and viability of town centres which serve the whole community and in particular provide a focus for retail development where the proximity of competing business facilitates competition from which consumers benefit, and to ensure the availability of a wide range of shopping opportunities to which all people have easy access, by foot or by public transport.

8.

In considering proposals for major retail development it will be necessary to take account of the cumulative effects of other recent and proposed large-scale retail developments and to consider whether they could affect seriously the vitality and viability of a nearby town centre as a whole. PPG6 underlines the need for town centres to maintain their diversity and activitiy if they are to retain their v i t a l i t y. The modernisation and refurbishment of town centres is welcomed

Justification 5.

Major retail development, including food superstores, attract substantial numbers of shoppers and therefore need to be sited in locations where they will be accessible to a greater number of people. The Council considers that its town centres of Dalston, Mare Street and Stoke Newington are suitable locations for accommodating major retail development, including food superstores, as these centres are the focus of public transport facilities reasonably accessible to all members of the c o m m u n i t y. Moreoever these centres contain a wide range of shops and shopping facilities that enhance their viability and have development sites which the Council wishes to see developed.

National Policy Context Planning Policy Guidance Note 6: Town Centres and Retail Development 6.

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Planning Policy Guidance Note 6 (PPG6) provides guidance on the planning aspects of retail development and all developments in town centres. It emphasises that the planning system should continue to facilitate competition


town centres as additional foci for new investment and retail floorspace.

Regional Policy Context 9.

Regional Planning Guidance for the South-East (RPG9) includes as one of its objectives the revitalising of the older urban areas. The new strategy for the South-East contained in SERPLAN 1990 proposes targeting of new retail investment particularly at defined ‘core’ centres and local planning authorities identifying core shopping areas for comprehensive improvement.

13. Advice also advocates steering lar g e superstores and retail warehouses into town centres, subject to traffic, environmental and accessibility constraints. Improving access, parking, environmental quality, pedestrian facilities, and the overall range of shops and shopping facilities are supported.

Local Policy Context

Metropolitan Policy Context Strategic Planning Guidance 10. Strategic Guidance for London (1989) states that existing town centres should continue to be the main focus for the provision of shopping facilities and that plans should promote the modernisation and refurbishment of town centres in ways that improve the environment and enhance the attractiveness of the centres. It also recognises that not many people have the use of cars for shopping and the needs of such shoppers should be met by shops which are easily accessible. Strategic Planning Advice 11. Strategic Planning Advice for London supports the existing broad hierarchy and pattern of shopping centres. The UDP identifies Dalston as the Borough’s most suitable town centre for further growth and investment. The emphasis over the plan period will be upon regeneration and improvement given the problems of poor environmental quality, traffic congestion, limited range of shops and shopping facilities, and parking and servicing d i fficulties which constrain further development. 12. Advice supports the designation of other London Borough of Hackney Adopted UDP – June 1995

14. Shopping provision in Hackney falls within a clearly structured hierarchy which is well distributed within the Borough. Dalston (Kingsland) is the largest town centre. It offers a wide range of goods and services, draws trade from a catchment area beyond the Borough boundary and serves a population of more than 200,000. During the past seven years, Council sponsored schemes have achieved major urban regeneration benefits and improvements in Dalston Town Centre. In February 1989, Dalston Cross, a development containing a Co-operative Retail Services (CRS) superstore with a retail floorspace of 48,000 sq. ft., 30 shop units and a 380 space car park opened for trading. This scheme improved both the range of shops and shopping facilities for people who live and work in the Borough. There are proposals to further improve the range of shopping and town centre facilities and the environment in Dalston. 15. In addition to Dalston there are smaller town centres such as Mare Street and Stoke Newington. These centres provide durable goods, food, and general household shopping for an area wider than their immediate surroundings. In concert with Dalston, they serve as focal points for other general commercial, leisure and community facilities, serving both the local and Borough-wide population. 195

16. There are proposals to improve the quality of both shopping and the environment in Mare Street, including the redevelopment of the Chalgrove site. Planning studies including development briefs for particular sites have been prepared for the Mare Street shopping centre. 17. A number of other smaller centres identified as ‘shopping centres’ on the proposals map form the third tier of the shopping hierarchy. These contain a range of facilities (such as food shops, general household goods, chemist, post office) which service a more local catchment area. There is also an extensive network of local parades and corner shops serving day-to-day needs for the immediate surrounds. 18. Over the last few years the Council has used its powers and different sources of finance to bring environmental improvements, such as traffic management schemes, new street lighting, repaving, and new development into Hackney’s shopping centres. Two of the smaller centres, Hoxton Street and Broadway Market, have particularly benefited. The Council has successfully used Urban Programme finance in these areas. Commercial Improvement Areas have been declared in Stoke Newington and Hoxton, bringing grant aid to businesses. The Council intends to keep up this activity throughout the Plan period. 19. Despite these new investment and improvement programmes changes in the nature of retailing have affected the pattern of retailing in Hackney. There has been a decline in shopping floorspace, down from 428,000 square metres in 1979 to 409,000 square metres in 1986. 20. There is a growing demand for shop premises from service trades, such as building societies and restaurants. This puts pressure on continued retail use of shop units within shopping centres. 196

21. Local shops for day-to-day needs are spread widely throughout most of the Borough but there are some areas where there are no readily accessible shops. 22. Shops providing goods and services for the black and ethnic minority communities lack prominence. There are gaps in the market for specialist food, clothing and record music shops, technical and financial advice, banking, travel and shopping services. 23. There are relatively few nationallyknown retailers providing convenience and durable goods, and many residents have to travel to central and other parts of London to meet their shopping needs. This in itself means that Hackney needs good quality shops in its shopping centres to provide the variety and choice of shopping goods and service needed by its residents, in order to retain shopping expenditure within Hackney. 24. Dalston, Mare Street and Stoke Newington town centres are well suited for such developments. They have good public transport facilities, a wide range of other town centre facilities, and substantial areas of sites and properties potentially available for refurbishment/redevelopment for large new quality shops and car parking. 25. Another issue affecting retailing in Hackney is how to improve the environmental quality of many of its shopping centres. Many of Hackney’s shopping centres have seen a decline in environmental standards due, for example, to ageing building stock and increased traffic congestion. 26. Hackney’s traditional street markets need improvement to facilities and the environment to benefit traders and shoppers. 27. Maintaining and improving access to shopping facilities for those who are in a London Borough of Hackney Adopted UDP – June 1995

wheelchair, or for carers with buggies, and for the frail and elderly remains a continuing issue. Many shopping centres and individual shops are not sufficiently well-designed to permit safe and convenient use by all members of the community. In particular, there is a need for better accessibility and facilities for the elderly and frail, for people with disabilities and for people with children. 28. Women who are the main users of shopping facilities are often obliged to take children with them when shopping. It is essential to involve women in the improvement and design of shopping facilities.


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POLICIES

JUSTIFICATION

New Development R1 Town Centres WHEREVER POSSIBLE THE COUNCIL WILL PROMOTE AND ENCOURAGE DEVELOPMENT OF RETAIL, OFFICE, COMMUNITY, ARTS, CULTURE AND ENTERTAINMENT ACTIVITIES IN THE DALSTON, MARE STREET AND STOKE NEWINGTON TOWN CENTRES. IN PRINCIPLE SUPPORT WILL BE GIVEN TO PROPOSALS WHICH ENHANCE AND IMPROVE THE RETAIL AND TOWN CENTRE FUNCTIONS OF THESE CENTRES PARTICULARLY ON THE DEVELOPMENT SITES SHOWN ON THE PROPOSALS MAP.

The town centres of Dalston, Mare Street and Stoke Newington are reasonably accessible: bus and rail services are available and there is limited car parking. These areas also contain a range of shops and services and are a focus for their locality. The Council therefore considers that they are suitable for the location of developments such as shops, offices, entertainment and community uses which attract substantial numbers of people for work and leisure. They are also a good location for training and education facilities, and for cultural and entertainment centres for black and ethnic minorities and women. Trade generated by these uses will benefit shops and the centres as a whole. The Council recognises that there is need for an improvement in food retailing in the Borough as there has been little modern store development. There is a demand for development sites from retailers which the Council wishes to meet, providing devel-opment can be satisfactorily accommodated within designated shopping centres. Supp-orting and encouraging in-centre development in these centres would lead to improved prosperity and business confidence and help secure viability and vitality. The Council has consequently identified town centre development sites in Dalston and will bring forward development sites in the other centres when the opportunity arises. Notes: (i) As it may not be possible for a developer to assemble an in-centre site, the Council may assist with site assembly and finance and will consider the inclusion of its own land in development schemes. Where the devel-opment will produce benefits to the community, the Council will consider financial assistance via Single Regeneration Budget funding. (ii) Policy E12 refers to office development in Dalston, Mare Street and Stoke Newington.

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POLICIES

R2 New Shopping Development and the Rebuilding or Extension of Existing Shops THE COUNCIL WILL NORMALLY GRANT PLANNING PERMISSION FOR THE CONSTRUCTION OF NEW SHOPS AND REBUILDING/EXTENSION OF EXISTING

JUSTIFICATION

Although the Council wishes to concentrate new retail investment in existing centres wherever possible, the policy criteria apply to all proposals for shopping, including major schemes throughout the Borough.

SHOPS SUBJEC TO: (A)

THE PROPOSAL NOT UNDERMINING THE VITALITY AND VIABILITY OF DEFINED CENTRES AS A WHOLE;

(B)

SATISFACTORY STANDARDS OF DETAILED DESIGN, LAYOUT AND ACCESS;

(C)

THERE BEING NO UNACCEPTABLE EFFECTS UPON NEIGHBOURING USES AND THE ENVIRONMENT OF THE SURROUNDING AREA IN TERMS OF APPEARANCE, NOISE AND DISTURBANCE;

(D)

THERE BEING ADEQUATE HIGHWAY CAPACITY TO ACCOMMODATE TRAFFIC ATTRACTED INCLUDING PEAK FLOWS, EITHER WITH OR WITHOUT ADAPTATION;

(E)

MAINTENANCE OF A SATISFACTORY BALANCE

In assessing any retail development, the Council will take into account the scale, location and nature of proposed development and may require submissions of a retail impact study from the developer to enable assessment of the likely impact on existing traders, the effect on its town centres as a whole and other “shopping centres” identified on the proposals map, and the implications for the shopping pattern. The shopping centres whose vitality and viability the Borough may wish to safeguard in the assessment of effects of a major retail development are its town centres of Dalston, Mare Street, and Stoke Newington and the local shopping centres of, for example, Stamford Hill, Lower Clapton Road and Well Street.

BETWEEN RETAIL AND NON-RETAIL USES; (F)

ADEQUATE CAR AND CYCLE PARKING FOR STAFF AND CUSTOMERS;

(G) ADEQUATE SERVICING, TO INCLUDE THE PROVISION OF REAR SERVICE ACCESS WHERE APPROPRIATE; (H) SATISFACTORY MEANS OF ACCESS FOR SHOPPERS ARRIVING ON FOOT OR BY PUBLIC TRANSPORT AND FOR PEOPLE WITH DISABILITIES; (I)

SATISFACTORY PROVISION FOR PEOPLE WITH YOUNG CHILDREN, AND FOR PEOPLE WITH

Besides retailing, the Borough’s town centres are important for employment and a range of non-shopping activities such as recreation and entertainment. Schemes which involve the displacement of non retail uses require careful consideration. The effect of this loss and the need for replacement facilities will be weighed against the gain in shopping facilities, any employment gain, and any benefits to the attractiveness, quality of facilities, convenience and vitality of shopping areas as a whole.

DISABILITIES COMMENSURATE WITH THE NATURE AND SCALE OF THE PROPOSAL; AND (J)

SATISFACTORY PROVISION FOR WASTE AND RECYCLING FACILITIES COMMENSURATE WITH THE NATURE AND SCALE OF THE PROPOSAL.

IN IMPLEMENTING THIS POLICY THE COUNCIL WILL PARTICULARLY ENCOURAGE: London Borough of Hackney Adopted UDP – June 1995

L a rge scale development can have adverse e ffects on traffic movement in an existing centre. Any such development will therefore be expected to fit satisfactorily into the highway network and comply with Policies TR4, TR5, TR6, and TR19 in particular. Where road improvements or special traffic management measures are needed as a result 199

POLICIES (1)

PROPOSALS WHICH IMPROVE THE RANGE AND QUALITY OF SHOPPING, FOR EXAMPLE BY PROVIDING SPECIALIST SERVICES,

JUSTIFICATION

of major retail development the Council will require a substantial contribution to costs from the developer.

REMEDYING DEFICIENCIES IN PROVISION OR MEETING THE NEEDS OF ETHNIC MINORITY COMMUNITIES; AND (2)

PROPOSALS WHICH WOULD MAXIMISE LOCAL EMPLOYMENT OPPORTUNITIES.

All of Hackney’s shopping centres lie on busy, congested roads, therefore appropriate opportunities to provide rear servicing must be taken. Since many Hackney residents go shopping on foot or use public transport, the Council will expect the detailed design of the development to permit safe and easy access for those who do not arrive by car and, e s p e c i a l l y, for those with disabilities. The provision of adequate access and facilities for people with disabilities is, therefore, considered vital. Similarly, the provision of creche facilities, and facilities for feeding and changing children and public toilet accommodation will particularly benefit women, who traditionally bear the main responsibility for shopping and childcare. The requirement for the provision of the latter facilities will be related to the scale of proposed development.

R3 Development within Shopping Frontages WHERE REDEVELOPMENT IS PROPOSED WITHIN A SHOPPING FRONTAGE, THE COUNCIL WILL SEEK TO MAINTAIN THE CONTINUITY OF THE SHOPPING FRONTAGE AND, IF SHOPS ARE REDEVELOPED, WILL GENERALLY REQUIRE THE PROVISION OF REPLACEMENT SHOP UNITS.

A continuous shopping frontage of shopping windows and displays is central to the identity and image of a shopping area. Informative and interesting shop window displays attract customers and create life and character in a shopping area. In requiring replacement shop units in redevelopment schemes, the council will not exclude non-retail uses appropriate to a shopping area, notably those in classes A2 and A3 of the Use Classes Order, which are akin to shops in function and appearance.

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POLICIES

JUSTIFICATION

R4 Local Shops WHERE LOCAL SHOPPING IS INADEQUATE AND THIS INADEQUACY WOULD BE SIGNIFICANTLY EXACERBATED BY MAJOR HOUSING OR OTHER DEVELOPMENT SCHEMES, THE COUNCIL WILL SEEK PROVISION OF SHOP UNITS AS PART OF THAT SCHEME.

Reasonable access to local shops is essential for the day-to-day needs of all members of the community. New housing and other schemes o ffer the opportunity to provide shops in locations which are currently poorly served. Redevelopment schemes should avoid the inclusion of existing shop premises unless it is essential to the proper development of the sites concerned. For the purposes of this policy “major housing schemes” refers to new housing development on large housing sites of 0.4 hectares (1 acre) or more, while “major other development schemes” relate to new developments in prominent and accessible locations such as those on or close to the junction of two frontages and which bring substantial numbers of additional workers into an area. Each case will be judged on its individual merits.

R5 Car Tyre/Exhaust/Service Centres; Self-Drive and Chauffeur-Driven Car Hire Outlets THE COUNCIL WILL ONLY PERMIT THE ESTABLISHMENT OF CAR TYRE/EXHAUST/SERVICE CENTRES, SELF-DRIVE AND CHAUFFEUR DRIVEN CAR HIRE OUTLETS WHERE: (A) THERE WILL BE NO SIGNIFICANT ADVERSE IMPACT ON THE AMENITY AND ENVIRONMENT OF NEARBY OCCUPIERS; (B)

THERE WILL BE NO SIGNIFICANT LOSS OF

These uses can have a significant impact on local amenity through excessive on-street parking of customers’ cars, noise and servicing of vehicles in the street. Assessment of proposals against the criteria set out in this policy will ensure that unacceptable intrusion is avoided and that sites suitable for more job intensive industrial/commercial uses are protected.

EMPLOYMENT OPPORTUNITIES (SEE EMPLOYMENT CHAPTER); (C)

ADEQUATE OFF-STREET PARKING IS PROVIDED; AND

(D)

IN THE CASE OF CAR TYRE/EXHAUST/SERVICE CENTRES, THERE IS SUFFICIENT ROOM ONSITE TO ENABLE VEHICLES TO BE SERVICED CLEAR OF THE PUBLIC HIGHWAY.


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JUSTIFICATION

Changes of Use R6 Core Shopping Areas IN THE TOWN CENTRES, THE COUNCIL WILL NOT NORMALLY PERMIT CHANGES OF USE INVOLVING A LOSS OF GROUND FLOOR RETAIL FLOORSPACE WITHIN THE CORE SHOPPING AREAS SHOWN ON THE PROPOSALS MAP WHERE THIS WOULD UNACCEPTABLY HARM THE RETAIL FUNCTION, CHARACTER AND VITALITY OF THE SHOPPING AREA.

In the Borough’s town centres it is important to protect the central area of retailing. Changes of use which break up these areas will affect the vitality, character and appearance of each centre as a whole. In assessing any proposal for a change of use, the Council will take into account the appearance, method of operation and likely customer attraction of the proposed use, as well as the character of the surrounding area in terms of appearance, pedestrian flows, and balance of uses. In a core shopping area, shopping is the principal and dominant land-use. Usually it contains the most important shopping facilities, those which attract the greatest number of customers and which contribute most to the vitality of the centre. In all the centres there will be ample opportunity outside the core area for non-retail uses, to provide the services which complement shopping facilities. The Council has designated core shopping areas only in the town centres in the Borough and, within them, only in the main or primary parts of the centres. Note: Core shopping areas have been identified for Dalston, Mare Street and Stoke Newington. The Schedule of Proposals at the rear of the Plan lists the properties affected.

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JUSTIFICATION

R7 Changes of Use in Shopping Centres SUBJECT TO THE PROVISION OF POLICIES R6 AND R8 THE COUNCIL WILL PERMIT CHANGES OF USE OF GROUND FLOOR ACCOMMODATION WITHIN TOWN CENTRES AND LOCAL SHOPPING CENTRES DEFINED ON THE PROPOSALS MAP PROVIDED THAT: (A) THE USE IS APPROPRIATE TO A SHOPPING CENTRE IN TERMS OF FUNCTION, MODE OF OPERATION AND APPEARANCE; (B)

THE PROPOSAL AVOIDS CREATING A DEAD FRONTAGE BY CAREFUL ATTENTION TO DETAILED DESIGN, WHICH MAY INCLUDE PROVISION OF AN APPROPRIATE WINDOW DISPLAY.

Shopping centres are important for commercial and leisure activities as they contribute to the range of shopping services and facilities offered. However, whilst allowing for a suitable mixture of retail and non-retail uses, the Council does not wish to see non-retail uses dominating the core frontages of its shopping centres. Rather, the Council wishes to maintain the primary retail function of its shopping centres by controlling the number of non-retailing uses in them. A concentration of non-retailing uses can threaten the prosperity of a retail frontage. At the same time, the Council will guard against the creation of breaks in the shopping frontage by requiring shop window displays in appropriate circumstances. The following uses are considered acceptable in principle: •

Bank, building society, estate agent, insurance broker, betting of f i c e , employment agency, solicitor;

•

Social, community or health use (e.g. meeting places for women, black or ethnic minorities, lesbians or gay men, the unemployed, or doctor’s surgery);

•

Cafe, restaurant, wine bar ‘take-away’ hot food shop (subject to compliance with policy R10);

•

Mini-cab office, driving school (subject to compliance with policy R11);

•

Amusement centre, pool hall, leisure or recreational use (subject to compliance with policy R12);

•

Launderette, pet shop;

•

Car showroom;

•

Arts and cultural uses.

Other uses will be considered on their merits.


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JUSTIFICATION

R8 Protecting Local Shops OUTSIDE TOWN CENTRES, THE COUNCIL WILL SEEK TO MAINTAIN THE LEVEL OF SERVICE PROVIDED BY ESSENTIAL LOCAL SHOPS AND THAT, IN CONSIDERING PROPOSALS FOR CHANGE OF USE OF SUCH SHOPS, THE IMPACT ON THE LOCAL COMMUNITY OF LOSS OF SERVICE WILL BE TAKEN INTO ACCOUNT.

The Council’s powers are restricted to the determination of applications for change of use from retail shops to non-retail uses. A change from one sort of retail shop to another may be made without planning permission but can nonetheless have a marked impact on the shopping facilities of local communities. However, the Council will use its powers and its role as landlord where possible to protect these essential facilities. The following uses will be considered “essential local shops”: food shops such as baker, butcher, greengrocer, grocer, specialist ethnic food shop. The following uses will be considered as “essential service shops”: dispensing chemist, launderette, newsagent and post office. The Council consider that these shops provide for essential day-to-day needs. The retention of adequate essential local shops within easy walking distance of most homes and workplaces is a crucial element of the Council’s shopping strategy. These shops are found in many locations outside the town centres defined on the proposals map. Some will be in smaller centres serving a particular neighbourhood of the Borough, such as Chatsworth Road and Broadway Market, and others in local parades, such as Green Lanes, or corner shops. These essential local shops are particularly important for the less mobile members of the community; the old and infirm; people with disabilities; those with young children to care for (particularly women who traditionally have the main responsibility for shopping and for childcare); and the unemployed. Note: The Council considers that a reasonable walking distance is about 400 metres (440 yards).

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R9 Redundant Shops Outside Shopping Centres OUTSIDE THE TOWN CENTRES AND LOCAL SHOPPING CENTRES DEFINED ON THE PROPOSALS MAP, IF IN THE OPINION OF THE COUNCIL A SHOP UNIT IS REDUNDANT, THEN THE COUNCIL MAY PERMIT CHANGES OF USE TO: (A) ANY OF THE USES LISTED IN POLICY R7; (B)

BUSINESS USES (CLASS B1);

(C)

STORAGE;

(D) RESIDENTIAL SUBJECT TO DETAILED CONSIDERATION OF THE LIKELY IMPACT ON ADJOINING USES. POLICIES R6-R9 ESTABLISH IN GENERAL TERMS

The Council recognises that in some locations, particularly on the fringes of the town centres, there is much reduced demand for shop units and that this can lead to long-term vacancies. Where there is little prospect of these vacant units becoming occupied by new retail uses then their continued vacancy represents a lost opportunity for other uses which could provide accommodation for new businesses or community and black and ethnic minority initiatives. Accordingly, in the circumstances specified by this policy the Council will consider the acceptability of other uses. This policy will also be applied to isolated units which do not provide an essential local shop.

WHETHER OR NOT PLANNING PERMISSION WILL BE GIVEN FOR CHANGES OF USE FROM SHOPS TO NONRETAIL USES. THE COUNCIL ALSO NEEDS TO CONSIDER IF THE PARTICULAR USE PROPOSED IS AN APPROPRIATE ONE. THE FOLLOWING POLICIES SPECIFY WHAT THE COUNCIL WILL CONSIDER IN ASSESSING THE LIKELY IMPACT ON LOCAL AMENITY.

R10 Cafes, Restaurants, Wine Bars and ‘Take-away’ Hot Food Shops IN CONSIDERING A PROPOSAL FOR A CHANGE OF USE TO A CAFE, RESTAURANT, WINE BARS, OR ‘TAKE-AWAY’ HOT FOOD SHOP THE COUNCIL WILL TAKE INTO ACCOUNT: (A) THE LIKELY IMPACT ON THE AMENITIES OF ADJOINING RESIDENTIAL ACCOMMODATION; AND (B)

THE CUMULATIVE ENVIRONMENTAL IMPACT

The Council recognises that restaurants and ‘take away’ hot food shops are particularly important business opportunities for the black and ethnic minority communities. Restaurants and cafes also provide a cultural and recreational service to the community. (Policy ACE1 deals with entertainment and in general with the particular need in Hackney for banqueting halls to accommodate cultural and social events).

ON THE LOCALITY WHERE A NUMBER OF SUCH USES ALREADY EXIST; AND (C) THE LIKELY EFFECT OF CAR PARKING ON THE FREE FLOW OF TRAFFIC.


These uses can cause considerable pedestrian and vehicular activity which is likely to be greater than a retail use. The main objectives of this policy are to control both the operation and location of these entertainment uses so as to 205

POLICIES WHERE COOKING SMELLS AND FUMES WILL BE CREATED THE COUNCIL WILL REQUIRE THE INSTALLATION OF VENTILATION AND FUME EXTRACTION EQUIPMENT. IF THIS WOULD BE DETRIMENTAL TO VISUAL AMENITY THEN PLANNING PERMISSION MAY BE REFUSED. WHERE THERE IS RESIDENTIAL ACCOMMODATION ON UPPER FLOORS THE COUNCIL WILL NORMALLY REQUIRE DUCTING TO DISCHARGE ABOVE EAVES LEVELS AND THE PROVISION OF ADEQUATE SOUNDPROOFING. THE COUNCIL WILL REQUIRE SUBMISSION WITH THE PLANNING APPLICATION OF THE FULL DETAILS OF VENTILATION AND FUME EXTRACTION EQUIPMENT SHOWING LOCATION OF THE FLUE AND MOTOR, DIMENSIONS, COLOUR/MATERIAL, MODEL AND NOISE LEVELS. IT WILL ALSO REQUIRE DETAILS OF THE REFUSE

JUSTIFICATION

minimise their adverse impacts. The Council will need to consider the likelihood of noise and disturbance to nearby residents, particularly at the weekend and late at night. Late closing cafes and restaurants should generally be located in the town centres and near places of entertainment. In some circumstances, the Council may impose restricted permissions to prevent uses changing to other uses within the same use class without the need for planning permission. For instance, the Council may impose restricted permissions for cafe uses to prevent them from being used as wine bars or public houses, since these uses would be likely to have a markedly different impact on the amenities of occupiers of upper floor flats or adjoining residential properties.

CONTAINMENT FACILITIES.

The Council has powers under the GLC (General Powers) Acts 1968 and 1976 to require ‘take away’ hot food shops to close between midnight and 05.00 hours. In some areas the protection of residential amenities will demand more restricted opening hours and, where appropriate, the Council will impose these as conditions on planning permissions. The Council recognises that, in Hackney, most customers are likely to arrive on foot rather than by car. Parking may cause problems, however, and the Council will take into account the availability of short-term on-street parking and the likelihood of congestion. Ve n t i l a t i o n , ducting and filtration arrangements are essential to avoid cooking smells and fumes causing nuisance and polluting the air. Consequently, the Council will require the full details of ventilation and fume extraction equipment including refuse containment facilities to be submitted with planning applications to ensure early resolution of the causes of nuisance and pollution. Because equipment can be visually intrusive, there will be instances where it may not be possible to give permission to the use itself without damage to the visual amenity (for example, where a flue can only be installed on a front elevation of a building). Detailed requirements are set out in a Supplementary Planning Guidance Note. 206


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JUSTIFICATION

Note: In addition to planning powers the Council is responsible for the registering of cafes, restaurants and ‘take away’ hot food shops under the Greater London Council (General Powers) Act 1968, and the Late Night Refreshment House Act 1969 (where a late closing hour is requested). The Food and Drink Class (A3) in the Use Classes Order 1987 includes a number of related uses, for example, restaurants, cafes, snack bars, wine bars and public houses.

R11 Mini-cab and Driving School Offices THE COUNCIL MAY PERMIT MINI-CAB OFFICES OR DRIVING SCHOOL OFFICES SUBJECT TO THE LIKELY IMPACT ON: (A) EXISTING SHOPPING FACILITIES (AS SET OUT IN POLICIES R6, R7 AND R8); (B)

These uses provide new business opportunities and employment, particularly for members of the black and ethnic minority communities. Mini-cabs make an important contribution to public transport, especially at night and for hospital visiting, shopping and group travel.

THE AMENITY OF NEARBY RESIDENTS; AND

(C) ON-STREET PARKING, THE FREE FLOW OF TRAFFIC AND CONGESTION. IN CONSIDERING A PROPOSAL, PARTICULAR REGARD WILL BE GIVEN TO FACTORS WHICH WOULD LESSEN THE IMPACT OF THE PROPOSAL, SUCH AS THE USE OF RADIO-CONTROLLED VEHICLES FOR MINI-CAB BUSINESSES.

However, the Council must balance the needs of the mini-cab and driving school offices with the need to protect residents from undue disturbance arising from noise and pollution from traffic and to minimise traffic congestion. Proposals close to housing are unlikely to be acceptable unless the applicant can demonstrate that the proposals will not adversely affect amenity.

IN MOST CASES, THE PROVISIONS OF OFF-STREET PARKING WILL NOT BE REQUIRED, ONLY WHERE THERE IS LIKELY TO BE SERIOUS INTERFERENCE WITH THE FREE FLOW OF TRAFFIC (SUCH AS CLOSE TO A ROAD JUNCTION OR WHERE THE ROAD IS ESPECIALLY NARROW OR HEAVILY TRAFFICKED) WILL OFF-STREET PARKING BE ESSENTIAL FOR

The use of radio controlled vehicles will be welcomed because the reduced need for drivers to return to the office for each fare will be likely to lessen, to some extent, disturbance to nearby residents, and reduce the possibility of traffic congestion.

PERMISSION TO BE GIVEN.

The Council must give consideration to the impact of on-street parking. In many locations, this need not lead to increased congestion. Where it is likely that the free flow of traffic, especially buses, will be seriously impeded then permission is likely to be refused unless nearby off-street parking is available. London Borough of Hackney Adopted UDP – June 1995

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JUSTIFICATION

Note: Detailed requirements for mini-cab hire offices and driving school offices are set out in a Supplementary Planning Guidance Note. In exceptional circumstances where the likely impact of these uses is difficult to assess, the Council may grant a temporary permission for a ‘trial period’, usually a minimum of one year.

R12 Amusement Arcades, Amusement Centres, Video Game Centres and Pool Halls THE COUNCIL WILL ONLY PERMIT AMUSEMENT ARCADES, AMUSEMENT CENTRES, VIDEO GAMES CENTRES AND POOL HALLS WITHIN THE TOWN CENTRES AND LOCAL SHOPPING CENTRES DEFINED ON THE PROPOSALS MAP, OUTSIDE OF THE CORE SHOPPING AREAS. IN CONSIDERING THESE USES PARTICULAR REGARD WILL BE GIVEN TO:

There has been increasing pressure in recent years for the use of shop units for various types of amusement. Whilst larger shopping centres may be able to integrate these uses with other ‘town centre’ activities, the local impact on nearby occupiers will be given careful consideration. The Council appreciates that although these uses can be conveniently grouped together under one policy, their characteristics differ and are changing.

(A) THE TYPE OF BUSINESS (EG. AMUSEMENTS WITH PRIZES, VIDEO GAMES ONLY, ETC.); (B)

THE PROPOSED OPENING HOURS;

(C) THE IMPACT ON THE AMENITIES OF SURROUNDING RESIDENTIAL ACCOMMODATION; (D) THE NUMBER OF OTHER SIMILAR USES WITHIN THE PARADE OR AREA OF THE SHOPPING CENTRE; (E)

THE IMPACT ON VISUAL AMENITY (ESPECIALLY IN CONSERVATION AREAS).

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The main planning issue with these uses is the likely scale of noise and disturbance, and the extent to which these need to be controlled to protect local amenity. This is likely to depend upon the type of amusement proposed and the extent to which these need to be controlled to protect local amenity. This is likely to depend upon the type of amusement proposed and the expected clientele: for example, amusement machines may often find a market among shoppers. It is therefore necessary to have regard to the type of amusement centres proposed in relation to the character and amenity of the shopping area. In accordance with national planning policy guidance, proposals close to housing, or near schools, churches, hospitals and hotels are unlikely to be acceptable, unless the applicant can demonstrate that the proposal will not adversely aff e c t amenity. It is also appropriate to consult with the Council’s Directorate of Education to ensure that such facilities are located satisfactorily in relation to school and youth facilities. London Borough of Hackney Adopted UDP – June 1995

POLICIES

JUSTIFICATION

Shopfronts and Upper Floors R13 Shopfronts and Shop Signs THE COUNCIL WILL REQUIRE NEW SHOPFRONTS (INCLUDING INTEGRAL SHOP SIGNS) TO COMPLY

Shopfronts form an important part of Hackney’s environment and street scene.

WITH POLICY EQ34.

R14 Access to Upper Floors THE COUNCIL WILL REQUIRE PROPOSALS FOR THE ALTERATION OF SHOP FRONTS TO RETAIN ANY EXISTING INDEPENDENT GROUND FLOOR FRONT ACCESS TO THE UPPER FLOORS EXCEPT

The Council wishes to ensure that upper floors are kept available for use. It is important that access to them is attractive, safe and convenient to use.

WHERE A SAFE AND CONVENIENT REAR OR SIDE ACCESS IS AVAILABLE OR IS PROVIDED AS PART OF THE DEVELOPMENT OR WHERE THERE ARE SPECIAL SECURITY OR OPERATIONAL CONSIDERATIONS WHICH PRECLUDE INDEPENDENT ACCESS TO UPPER FLOORS.

R15 Use of Upper Floors WHERE ACCOMMODATION ABOVE SHOP UNITS IS DISUSED THE COUNCIL WILL WELCOME APPLICATIONS FOR NEW USES, PARTICULARLY THOSE WHICH CREATE EMPLOYMENT OPPORTUNITIES OR COMMUNITY FACILITIES PROVIDED THAT: (A) WHERE THE ACCOMMODATION WAS PREVIOUSLY IN RESIDENTIAL USE, IT IS IN SUCH A SERIOUS STATE OF DISREPAIR THAT IT WOULD BE UNREASONABLE TO EXPECT IT TO BE BROUGHT INTO AN ACCEPTABLE CONDITION FOR RENEWED RESIDENTIAL USE; AND (B) THE PROPOSED USE WILL NOT CAUSE DISTURBANCE OR NUISANCE TO ADJOINING RESIDENTIAL ACCOMMODATION.


Most accommodation above shop units was provided for residential use and there is a shortage of homes in Hackney. The Council recognises, however, that it may be unreasonable to expect some unused residential space, particularly that which has been vacant for a considerable time, to be brought back into use. (See policy HO6). Repair costs may be prohibitive or the environment of the area may be unsuitable for renewed residential use due, for example, to disturbance from commercial or industrial activities. If residential use cannot be reintroduced then alternative uses may be appropriate. Upper floors may provide suitable premises for small businesses or for the diverse community advice and support organisations in the Borough. The Council may be able to assist new occupiers with loans and grants to adapt premises to suit their needs. 209

POLICIES

JUSTIFICATION

Where a change of use is acceptable in principle the Council must be satisfied that the new use will be compatible with any adjoining use.

Street Markets R16 Street Markets THE COUNCIL WILL SEEK TO SAFEGUARD AND IMPROVE THE EXISTING STREET MARKETS SHOWN ON THE PROPOSALS MAP BY: (A) ALLOCATING THE SITES SHOWN ON THE PROPOSALS MAP FOR THE STORAGE OF BARROWS, FOR MARKET FACILITIES AND FOR PARKING OF TRADERS’ VEHICLES;

The Council wishes to protect street markets because they are central to the identity and character of the shopping areas where they are situated. There are six street markets within existing shopping centres; their extent is shown on the proposals map. They provide services which may not be viable or suitable in normal premises.

(B) NORMALLY REFUSING PERMISSION FOR DEVELOPMENTS WHICH WOULD RESULT IN THE LOSS OF STREET MARKET PITCHES; AND

(C) NORMALLY REFUSING PERMISSION FOR STREET MARKET TRADING OR SALES FROM

Street markets can give rise to problems of l i t t e r, traffic congestion and obstruction of footways. Land is therefore required close to established street markets to store equipment, park traders’ vehicles, prepare goods for sale and for the collection and disposal of rubbish.

OPEN LAND OUTSIDE OF THE EXISTING TRADING AREAS.

Market trading on new sites and pitches outside the established trading area is undesirable and could lead to the loss of vitality and viability of existing shops and street markets and create environmental problems of additional congestion and poor hygiene practices. To protect the character and vitality and viability of existing street markets, planning permission for trading from adjoining sites will only be considered where it is clear that all potential street market pitches are in use.

New Street Markets R17 New Street Markets THE COUNCIL WILL ENCOURAGE THE PROVISION OF ADDITIONAL STREET MARKETS WITHIN DEFINED SHOPPING AREAS PROVIDED EXISTING PITCHES ARE REGULARLY USED AND THE PROPOSED MARKET CONFORMS TO OTHER POLICIES IN THE PLAN.

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Street markets are important for the establishment of new businesses by Hackney residents, particularly by the black and ethnic minority communities. The Council will therefore consider sympathetically proposals to create new and additional street markets within defined shopping areas. London Borough of Hackney Adopted UDP – June 1995

POLICIES

JUSTIFICATION

Planning Standards R18 Planning Standards THE COUNCIL WILL SEEK TO ENSURE THAT RETAIL DEVELOPMENTS ARE SATISFACTORY IN TERMS OF: (A) DESIGN AND MATERIALS; (B) PEDESTRIAN, CYCLE, PUBLIC TRANSPORT AND CAR ACCESS, INCLUDING ADEQUATE CYCLE AND CAR PARKING FACILITIES FOR STAFF AND CUSTOMERS AND SERVICING; (C) ACCESS AND FACILITIES FOR PEOPLE WITH DISABILITIES;

The Council expects that all shopping development should be properly integrated with neighbouring uses and incorporate the highest possible design and environmental standards. The Council will take into account the scale, location and nature of proposed development in its implementation of this policy. Detailed standards are set out as necessary in the Planning Standards Chapter and in Supplementary Planning Guidance to clarify the Council’s requirements.

(D) THE IMPACT ON THE TOWNSCAPE, AND THOSE POLICIES SET OUT IN THE ENVIRONMENTAL QUALITY CHAPTER; (E) SATISFACTORY PROVISION FOR PEOPLE WITH YOUNG CHILDREN COMMENSURATE WITH THE NATURE AND SCALE OF THE PROPOSAL; (F)

FACILITIES FOR WASTE MANAGEMENT AND RECYLCING.


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Chapter 8

Open Spaces and Nature Conservation INTRODUCTION STRATEGIC POLICIES NATIONAL POLICY CONTEXT REGIONAL POLICY CONTEXT METROPOLITAN POLICY CONTEXT LOCAL POLICY CONTEXT Metropolitan Open Land OS1

Enhancing Metropolitan Open Land

Nature Conservation OS14 Areas of Nature Conservation Interest OS15 Restriction of development affecting the proposed Walthamstow reservoirs Special Protection Area, Sites of Special Scientific Interest, and Local Nature Reserves OS16 Development and areas of nature conservation importance OS17 Wildlife Habitats OS18 Information and Interpretation Planning Standards OS19 Planning Standards Table OSP1

Open Spaces and Parks OS2 Open Spaces and Parks OS3 Loss of Open Spaces and Parks OS4 Protection of Character of Open Spaces and Parks OS5 Development Affecting Open Spaces and Parks OS6 Green Chains OS7 Sportsgrounds and Playing Fields OS8 Allotments OS9 Recreational Footpaths, Towing Paths, Cycleways and Bridleways OS10 Children’s Play Areas OS11 Use of Small Vacant Sites Water-Based Leisure OS12 Protection of Open Water Areas OS13 Access and Use of Water Areas


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facilities and programmes. Education and Leisure are developing many initiatives in these areas, including support for black groups (and promotion of black arts), steps to increase accessibility of existing facilities (e.g. women-only sessions at swimming baths), and detailed surveys to help identify specific needs.

Introduction 1.

2.

3.

The range and accessibility of open space, nature conservation areas and leisure facilities are important elements in the overall quality of life. In Hackney the provision for these uses does not meet need as there is a deficiency of local and specialist facilities. This is partly due to the specific needs of Hackney residents and partly to the complexities of finance and co-ordination associated with the number of ‘providers’ of leisure, which include Hackney Council, the Lee Valley Regional Park Authority, the Sports Council, voluntary organisations and the private sector. The implementation of public leisure policy is divided between the Council’s Directorate of Environmental Services who manage parks and open spaces, and the Council’s Directorate of Education and Leisure who manage sport, arts and entertainments, libraries and community services. A programme of refurbishment, extension and some new facilities, along with revised management, is envisaged. The Lee Valley Regional Park Authority has a responsibility for the provision and maintenance of leisure facilities within the park and in recent years has carried out extensive works at Middlesex filter beds, and towpath improvements at Hackney Marshes. The private sector also makes a substantial contribution to leisure provision through investment in facilities such as cinemas, snooker halls, saunas and fitness training centres. The Council recognises that leisure facilities for black and ethnic minorities, women, people with disabilities, and gay and lesbians are generally inadequate. Opportunities to meet the needs of these groups lie mainly with the Council’s Directorate of Education and Leisure through management and funding of their


4.

This Chapter cannot outline all the management and policy aims/ proposals of the Council as the Unitary Development Plan is confined to land use and environmental aspects of open space, leisure and nature conservation provision. Hence, in this chapter, emphasis is given to the protection of facilities and opportunities for future open space use (e.g. Stoke Newington Reservoirs and Lee Valley Regional Park) and to the appropriate location of new leisure development, both public and private.

Strategic Policies ST39 THE COUNCIL WILL RETAIN, CREATE AND PROTECT AND ENHANCE THE CHARACTER OF A HIERARCHY OF PUBLICLY ACCESSIBLE OPEN SPACES PROVIDING REGIONAL PARKS AND OPEN SPACES, DISTRICT PARKS, LOCAL PARKS, SMALL LOCAL PARKS AND OPEN SPACES, LINEAR OPEN SPACES AND GREEN CHAINS.

Justification 5.

There is widespread agreement that a proportion of London’s urban area should be kept open, if it is to be a civilised city. All open space, whether it performs a ‘structural’ role, a strategic recreational role, or a local role contributing to urban environmental quality, is of the greatest importance in an urban area as large and densely developed as London. Larg e parts of inner London are disadvantaged 215

in terms of open space provision. It is therefore important that, in boroughs such as Hackney, existing open spaces are preserved, improved and fully used. (See table OSP1 with regard to the types of accessibility of open space in the Borough). The interlinking of open spaces, footpaths, rivers, canals, bridleways and disused railways is also of structural, recreational and nature conservation importance. Hackney will work with its neighbouring boroughs towards this aim, will protect Green Chains from development, and seek to implement the ‘missing links’.

Metropolitan Open Land, together with other open spaces, whether accessible to the public or not, is needed both for active sport and informal leisure, recreation, and for the intrinsic qualities of ‘openness and greenness’. ST42 THE COUNCIL WILL SEEK TO PROTECT AND ENHANCE THE NATURAL ENVIRONMENT OF THE BOROUGH AND WILL PROMOTE A GREATER AWARENESS OF NATURE CONSERVATION AND ECOLOGICAL ISSUES.

Justification ST40

8.

THE COUNCIL WILL SEEK TO RETAIN EXISTING SPORTS GROUNDS, PLAYING FIELDS AND ALLOTMENTS AS OPEN SPACE.

Justification 6.

It is important to retain valuable amenity open space within the urban environment. Sports grounds, playing fields and allotments can all be of great importance to the character of a neighbourhood and can provide valuable opportunities for recreation in heavily populated urban areas.

ST41 THE COUNCIL WILL SEEK TO REALISE THE POTENTIAL OF METROPOLITAN OPEN LAND AND OTHER OPEN SPACES TO PROVIDE FOR A WIDE RANGE OF APPROPRIATE AND ACCESSIBLE

There is a growing interest and concern with ecological matters. London has a number of wildlife habitats and sites which are of more than local significance. They attract visitors from a very wide area for educational, scientific or recreational purposes. Many natural habitats and features cannot easily be recreated elsewhere and must be conserved where they can still be found. The Council will encourage land owners and managers to consider forms of management that will aid the conservation of natural features within their sites. The appropriate management of wildlife sites and of other open land, especially within green corridors and Green Chains will also be encouraged. In particular the development of ecological management plans will be encouraged to ensure the maximum degree of wildlife conservation.

LEISURE FACILITIES AND SPORTS, ARTS AND WATER BASED LEISURE ACTIVITIES.

Justification 7.

216

Metropolitan Open Land is any strategic open land within the urban area which is significant for London as a whole, or crosses several boroughs. It provides breaks in the built-up area, provides open air facilities and contains features or landscape of historic, recreational, and nature conservation interest which benefit the people of part or all of London.

National Policy Context Planning Policy Guidance Note 17: Sport and Recreation 9.

This PPG states that Government policies are aimed at securing maximum use of vacant land in urban areas, to sustain the vitality of our towns, and cities, encourage urban regeneration, and reduce development pressures on the countryside. London Borough of Hackney Adopted UDP – June 1995

But such policies should not be pushed at the expense of the quality of the urban environment. The Government attaches great importance to the retention of adequate recreational open space in urban areas. Demand is concentrated there, and it is important that people, particularly children and elderly people, should have access to open space close to where they live. Once built on, open space is likely to be lost to the community forever. Planning Policy Guidance Note 9: Nature Conservation 10. This PPG sets out the principles and policies that apply to the integration of nature conservation priorities and land use planning. It embodies the G o v e r n m e n t ’s commitment to sustainable development and to conserving the diversity of our wildlife. National conservation policy is mainly implemented through the designation and protection of National Nature Reserves, and Sites of Special Scientific Interest including those of international importance. In particular, it takes account of the implementation of the Habitats Directive, adopted by the Council of the European Communities in May 1992. Annex B shows classified and identified potential sites of international importance, and Annex C advises on development control in such areas in accordance with the Conservation (Natural Habitats and c.) Regulations 1994 (the Habitats Regulations). The PPG advises local authorities to consult English Nature about development proposals which may affect an area of wildlife importance. The PPG states that the conservation of nature is important. Attractive environments, where attention is given to nature conservation, are essential to social and economic well-being. With c a r e f u l planning and control, conservation and development can be compatible. The Government looks to local authorities to London Borough of Hackney Adopted UDP – June 1995

keep themselves informed of the state of the natural environment locally, and to take account of nature conservation interests wherever relevant to local decisions.

Regional Policy Context S E R P L A N ’s review of Regional Guidance: A new strategy for the South East 11. One of the main aims of SERPLAN’s strategy is to maintain and enhance the overall quality of the region’s environment. This means that renewed efforts should be made to protect important landscapes and open spaces. Local authorities are urged to devise positive programmes for securing environmental improvements and the management of change. Policies should aim to protect the corridors of open land penetrating urban areas. 12. SERPLAN endorses LPA C ’s policies concerning the protection of Metropolitan Open Land and makes a commitment to the care of semi-natural habitats and the protection of wildlife.

Metropolitan Policy Context Strategic Planning Guidance 13. Strategic Planning Guidance for London contains two key objectives which are of relevance to open space and conservation: (i)

to sustain and improve the amenity of residential districts.

(ii)

to give high priority to the environment, maintain the Green Belt and Metropolitan Open Land, preserve fine views, conservation areas, surrounding countryside and the natural heritage. 217

14. Guidance expects the London Boroughs to reaffirm the status of areas of Metropolitan Open Land, and states that the presumption against development in the Green Belt applies equally to Metropolitan Open Land. The importance of other areas of open land is recognised and the status of Green Chains are reaffirmed; playing a useful part in the urban environment by providing extended pathways for the public and wildlife corridors in natural surroundings, which link across borough boundaries. Boroughs are expected to take into account the importance of sports and recreational facilities, including playing fields and have regard to the London Council for Sport and Recreation’s “A Capital Prospect”. 15. Nature conservation is recognised as an important aspect of the environment and in formulating policies the Council paid regard to: (a)

PPG9;

(b)

English Nature’s document “Planning for Wildlife in Metropolitan Areas”;

(c)

The Ecology handbooks published by the London Ecology Unit.

Strategic Planning Advice 16. LPAC suggests that greater recreational use should be made of Metropolitan Open Land and “Green Chains”. The Advice also clearly states that all open spaces are of the greatest importance in an area as large and densely developed as London. L PAC also, recommends the use of revised GLDP guidelines and standards for open space. The cumulative loss of small public spaces ought to be resisted. The creation and provision of open space as a planning advantage should be sought. The open space deficiency methodology should be further developed, new spaces created, existing spaces enhanced and protected, and accessibility improved.

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Local Policy Context 17. 28% of Hackney’s population is under 20 which suggests a particular need for local recreation facilities. This proportion is anticipated to rise over the next 10 years and create even greater demand. Hackney also has one of the highest proportions of children under 5 in Inner London. The proportion of elderly people in the Borough is also high and expected to rise, thus increasing the need for quiet park areas and meeting places. 18. Leisure needs are not satisfactorily met at present, and will not be in the future unless substantially more finance becomes available to the Council. 19. Often, leisure facilities and activities are not fully accessible to members of the community. Hackney serves a population with a variety of cultural and ethnic backgrounds, generating needs for specialist premises and resource centres. There is thus a need to locate and manage facilities to encourage use by all. In particular, facilities should be designed to accommodate people with disabilities. 20. Hackney has a number of attractive parks, but the distribution of open space throughout the Borough is uneven, with the result that some areas lack local play facilities, outdoor sports pitches and courts and quiet gardens. There is also a widespread need for new, improved and readily accessible children’s play facilities. Residents are particularly dependent on local facilities due to the poor provision of public transport in Hackney, and the relatively low level of car ownership - 62% of the Borough’s households do not have access to a car. 21. The Stoke Newington Reservoirs, New River and the Regents Canal and Lee Navigation present major opportunities for nature conservation and leisure provision. London Borough of Hackney Adopted UDP – June 1995

22. Part of the Council’s recreation strategy includes the provision of sports centres to serve all parts of the Borough with an adequate range of specialist recreation facilities. One sports centre exists (Britannia) leaving gaps in provision in the north and east of the Borough. 23. Despite its built up nature, Hackney has a significant amount of open space within the Borough, of which some is particularly important for wildlife. The Council intends to retain sites of nature conservation importance for the unique benefits they provide for its residents. Urban nature conservation can also make important contributions to the economic and social character of an area as well as providing direct environmental benefits. F u r t h e r, the sites provide significant opportunities for formal and informal education, recreation and community activities as well as being of importance in their own right. Sites such as Stoke Newington Reservoirs, Abney Park Cemetery, Middlesex Filter Beds and the New River, Regents Canal and River Lee Navigation are of particular note. The Council is committed to the addition of sites in areas of current deficiency, such as South Shoreditch, where the development of Wenlock Basin would provide a significant opportunity to address this shortfall. The Council also wishes to realise the full potential of existing sites particularly for educational, recreational and community purposes. As such it has published a Nature Conservation Strategy to identify where such opportunities lie. This is an important strategic planning document which complements the policies in the UDP. 24. In order to secure more public open space and preserve and make the best possible use of existing open space, the classification in table OSP1 is a guide to the distribution, siting and type of open space required, paying particular regard to the density of the population to be London Borough of Hackney Adopted UDP – June 1995

served. The Council has reviewed open space provision in the context of this classification. 25. Strategic Advice identifies Metropolitan Open Land for specific protection. It is the Council’s responsibility to define precise boundaries for Metropolitan Open Land in the Borough and to protect and conserve such areas in recognition of their significance to London as a whole. 26. Much of the land on the eastern edge of the Borough lies within the Lee Valley Regional Park, established in 1966. The Lee Valley Regional Park Authority is obliged to develop, preserve and manage the park for leisure and recreation purposes. To assist it achieve these objectives the authority has prepared a park plan which the Council has to take into account in the preparation of the UDP and the implementation of its policies and proposals. 27. The park extends northwards along the Lee Navigation and River Lea some 20 miles to Ware in Hertfordshire. Park Authority policy has emphasised the construction of built and intensive recreational developments, which include the ice centre at Lea Bridge, Springfield Marina, and the Eastway Cycle Circuit and Sports Centre. Hackney Council will continue to support the Authority’s improvements to the landscape of the Lower Lee Valley, and the provision of better access to the Park’s facilities for Hackney Residents. 28. The Greater London and South East Sports council aim to provide opportunity and encouragement for all who wish to take part in sport and every form of outdoor recreation. Their strategy includes the provision of new facilities; the increased use of existing buildings and facilities; and improved access to all facilities, especially for those sectors of the population who are disadvantaged through physical, social or cultural factors. 219

POLICIES

JUSTIFICATION

Metropolitan Open Land OS1 Enhancing Metropolitan Open Land THE COUNCIL WILL GIVE FAVOURABLE CONSIDERATION TO PROPOSALS WHICH WILL ENHANCE THE APPEARANCE AND ATTRACTIVENESS OF METROPOLITAN OPEN LAND FOR LEISURE ACTIVITIES, SUBJECT TO OTHER POLICIES IN THIS PLAN. Note: Further policies applying to Metropolitan Open Land can be found in the Environmental Quality Chapter.

Metropolitan Open Land is important to London as a whole, the character and appearance of which needs to be kept open if it is to be a civilised city. This open space, whether of land or water is needed for both active sport and informal leisure and recreation, and for its intrinsic qualities of ‘Openness and greenness’. The Council will therefore take any opportunities arising from approved development in areas of Metropolitan Open Land or from development of adjoining land to enhance Metropolitan Open Land for the benefit of the community as a whole.

Open Spaces and Parks OS2 Open Spaces and Parks THE COUNCIL WILL SAFEGUARD THE SITES SHOWN ON THE PROPOSALS MAP FOR THE PROVISION OF NEW OR EXTENDED OPEN SPACES AND PARKS.

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The framework for the creation and protection of open spaces in the Borough is set out in Table OSP1 based on the LPAC classification modified to reflect Hackney’s density of population. This aims to ensure that all sections of the community have reasonable access to a variety of open spaces. Modest new or extended open spaces and parks are desirable to overcome local deficiencies in areas (mainly Dalston, Stoke Newington, Lower Clapton and Stamford Hill) where residents do not have access to a local open space or neighbourhood park within 400 metres of home and where suitable sites are available.


POLICIES

JUSTIFICATION

OS3 Loss of Open Spaces and Parks THE COUNCIL WILL NOT NORMALLY GRANT PLANNING PERMISSION FOR ANY DEVELOPMENT INVOLVING THE LOSS OF OPEN SPACES AND PARKS.

Public open spaces and parks (see Ta b l e OSP1) are vulnerable to redevelopment and the Council recognises that it is essential to protect these open areas in an otherwise densely developed Borough. Many residents are particularly dependent upon local open spaces, and parks because they do not have gardens of their own. Lack of a car and relatively poor public transport make it difficult for many residents to reach distant open spaces and these factors again emphasise the importance of retaining well-distributed open spaces. Note: Much of the Borough’s open space is registered as Common Land under the Commons Registration Act, 1965. The Act requires that any development or enclosure of Common Land be approved by the Secretary of State for the Environment. In the experience of the Council such approval is unlikely to be given except when there is likely to be a clear recreational benefit to the local community.

OS4 Protection of Character of Open Spaces and Parks THE COUNCIL WILL PROTECT THE OPEN LANDSCAPE QUALITY OF PARKS AND OPEN SPACES BY REQUIRING ANY PROPOSAL INVOLVING THE LOSS OR FRAGMENTATION OF SUCH AREAS TO: (A) HELP ACHIEVE THE BALANCE BETWEEN ACTIVE AND PASSIVE RECREATION AND BE IN ACCORDANCE WITH THE FUNCTION OF THE PARTICULAR OPEN SPACE OR PARK AS INDICATED IN TABLE OSP1; (B) PROVIDE A FACILITY WHICH IS AVAILABLE TO THE PUBLIC AND MEETS A RECREATIONAL OR LEISURE NEED FOR

Many of the Borough’s parks and open spaces are particularly valuable as settings for informal and quiet activities such as walking and sitting out. These open, mature landscapes (often characterised by attractive views and vistas) are often adversely affected by the gradual addition of ‘ancillary’ buildings and structures. These buildings and structures will only be allowed after careful assessment of the role played by that park/open space in the context of the open space hierarchy shown in Table OSP1, other local leisure facilities, and the availability of other sites for uses involving buildings.

WHICH NO OTHER SITE IS SUITABLE.


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POLICIES

JUSTIFICATION

OS5 Development Affecting Open Spaces and Parks THE COUNCIL WILL REQUIRE PROPOSALS FOR DEVELOPMENT IN OR ADJACENT TO OPEN SPACES AND PARKS TO: (A) RESPECT AND NOT DETRACT FROM ANY SPECIAL CHARACTER OF THE OPEN SPACE/PARK AND ITS SURROUNDINGS; (B) AVOID NUISANCE, INCONVENIENCE OR OTHER LOSS OF AMENITY TO USERS OF THE OPEN SPACE/PARK AND SURROUNDING AREAS; (C) RETAIN, IMPROVE OR PROVIDE SAFE AND CONVENIENT PUBLIC ACCESS, AS APPROPRIATE;

The special landscape qualities of all open spaces and parkland make an important contribution to the quality of H a c k n e y ’s overall environment which can be destroyed by careless development of poorly located buildings and structures. Inclusion in Conservation Areas, Areas of Special Landscape Character, and/or Metropolitan Open Land, plus Common Land status helps safeguard these qualities in certain areas, but the environmental value of smaller open spaces and parks must also be recognised. Of particular concern is the need to protect the open landscape character of the Borough’s larger Victorian open spaces and parks.

(D) TAKE ACCOUNT OF THE STANDARDS SET OUT IN POLICY OS17.

Proposals in or near open spaces will also be expected to comply with the relevant policies contained in the Environmental Quality Chapter in order to ensure a standard of design commensurate with their prominent and landscaped setting. The need to cross dangerous roads, take long routes or risk attack in poorly lit or isolated paths to reach parks and other open spaces, discourages many residents, particularly people with disabilities, the elderly, women, and people with young children, from visiting such areas. Opportunities to create safe and convenient pedestrian and cycle access will be sought to increase the attractiveness, awareness and therefore use of parks, open spaces and other recreation facilities. The redevelopment or reuse of certain sites can offer opportunities to improve existing access or create new access. In these circumstances the Council will seek to ensure that such opportunities are realised or safeguarded.

222


POLICIES

JUSTIFICATION

OS6 Green Chains and Links THE COUNCIL WILL SEEK TO PROTECT AND ENHANCE THE AREAS IDENTIFIED AS GREEN CHAINS AND LINKS ON THE PROPOSALS MAP. WHERE OPPORTUNITIES ARISE, THE COUNCIL WILL NORMALLY REQUIRE APPROPRIATE DEVELOPMENT SCHEMES TO FACILITATE THE CREATION OF GREEN LINKS AND ENHANCE ADJOINING GREEN CHAINS.

In some cases areas of open land link together across borough boundaries to form ‘Green Chains’. These can play a useful part in the urban environment by providing extended pathways for the public and wildlife corridors in natural surroundings. The Council will work with adjoining boroughs to extend Green Chains across London and in order to implement the ‘missing links’. Green Chains will provide links between and across Green Belt and Metropolitan Open Land and take special account of the need for long distance footpaths. Green Chains will also form a network of local, linked spaces. (See Policy TR1).

OS7 Sportsgrounds and Playing Fields THE COUNCIL WILL NORMALLY RESIST THE LOSS OF SPORTSGROUNDS AND PLAYING FIELDS AND FAVOURABLY CONSIDER IMPROVEMENTS TO THEIR QUALITY AND FACILITIES. THE COUNCIL WILL ENCOURAGE THE PROVISION OF ADDITIONAL SPORTS GROUNDS AND PLAYING FIELDS BY DEVELOPERS AND OTHER AGENCIES, BOTH PUBLIC AND PRIVATE.

The trend in most sports and recreational activities is towards an increase in participation. In addition there is the difficulty and expense of significantly improving the provision for outdoor sports and recreation within the built-up areas of London. There is a strong case, therefore, against any erosion in the provision of existing outdoor sports provision in the Borough. Sportsgrounds and educational playing fields in the Borough are also an important element in the overall regional provision for sports and recreation in London, not only providing for Borough needs but also serving other inner areas of London where such facilities are scarce. Strategic Guidance states that boroughs should take account of the importance of sport and recreational facilities, including playing fields, and include appropriate land use policies in their UDP. Reference should also be made to the London Council for Sport and Recreation’s “A Capital Prospect”, which indicates that there has been a huge growth in participation in sports in the 1970’s and 1980’s. Participation in outdoor recreation is much greater than indoor activities and walking, angling, athletics,


223

POLICIES

JUSTIFICATION

football and cycling are in the top ten of the most popular activities. PPG17 gives support to policies intended to protect sportsgrounds and playing fields.

OS8 Allotments THE COUNCIL WILL RESIST THE LOSS OF ALLOTMENTS, AND EXTEND PROVISION WHEREVER POSSIBLE.

OS9

There is a continuing interest in allotment gardening in Hackney, with the demand for plots exceeding the supply.

Recreational Footpaths, Towing Paths, Cyleways and Bridleways

THE COUNCIL WILL SEEK TO PROTECT AND ENHANCE EXISTING ROUTES TO AND THROUGH OPEN SPACES AND PLACES OF INTEREST. WHERE OPPORTUNITIES ARISE, THE COUNCIL WILL EXPECT ROUTES TO BE LINKED, TO FORM A WIDER NETWORK.

Walking, riding and cycling as a recreation are popular pastimes for residents and visitors alike. Many of the Borough’s best attractions can be approached by foot or bicycle and the development of a clear network of recreational routes integrated with the wider transport network will open up further recreational opportunities especially when linked with routes in neighbouring authorities, to create long distance footpaths/recreational routes.

OS10 Children’s Play Areas THE COUNCIL WILL NORMALLY REQUIRE NEW HOUSING DEVELOPMENT INTENDED FOR OCCUPATION BY HOUSEHOLDS WITH CHILDREN ON SITES OF 0.1 HECTARES (0.25 ACRE) OR ABOVE TO MAKE PROVISION FOR CHILDREN’S PLAY, AND ON SITES OF 0.4 HECTARE (1 ACRE) OR ABOVE TO PROVIDE A CHILDRENS PLAY AREA. IN DETERMINING THE SCALE AND NATURE OF PROVISION TO BE MADE THE COUNCIL WILL HAVE REGARD TO THE CHARACTER OF THE PROPOSED DEVELOPMENT AND OF THE SURROUNDING AREA, AND THE NATURE OF THE PROSPECTIVE OCCUPANTS.

224

The Council wishes to ensure that new housing developments do not create unacceptable pressures on existing play facilities or become new ‘areas of deficiency’. Young children benefit from sympathetic design and communal play facilities very near their home. Specific play areas will be required of larger housing developments, and must take account of local provision of play facilities and local play needs. Children’s play areas should be sited and designed so that they are safe and functional and discourage racial and other attacks on children. The Council’s guidelines on children’s play areas are set out in a Supplementary Planning Guidance Note. London Borough of Hackney Adopted UDP – June 1995

POLICIES

JUSTIFICATION

(Also refer to Policies HO9 and HO10). On smaller sites (between 0.1 ha and 0.4 ha), the Council accepts that a specific play area may not be appropriate but would wish to see some provision for children’s play (such as the provision of swings or other equipment).

OS11 Use of Small Vacant Sites THE COUNCIL WILL SUPPORT THE USE OF SMALL VACANT OR REDUNDANT SITES WITHIN OR NEAR RESIDENTIAL AREAS FOR PERMANENT OR TEMPORARY OPEN SPACES OR OTHER LEISURE FACILITIES WHERE, IN THE COUNCIL’S OPINION, THEY: (A) ARE NEEDED TO SATISFY A DEFICIENCY; (B) SATISFY OS17; (C) TAKE INTO ACCOUNT THE NATURE

Small residual sites can present opportunities to provide, at relatively low cost and with the active involvement of the local community, facilities such as play areas, gardens, nature study areas, allotments and all-weather pitches to meet local needs. In this context small residual sites refers to ‘landlocked’ and awkward sites around the edges of development, or sites unsuitable for other development.

CONSERVATION INTEREST AND/OR COMMUNITY USE OF THE SITE AND PROTECT

Note: See also policy EQ10.

AND ENHANCE THIS WHERE APPROPRIATE; (D) DO NOT CONFLICT WITH ANY OTHER POLICIES IN THIS PLAN.

Water Based Leisure OS12 Protection of Open Water Areas THE COUNCIL WILL NOT NORMALLY PERMIT DEVELOPMENT WHICH RESULTS IN THE LOSS OF OPEN WATER AREAS.

OS13 Access and Use of Water Areas THE COUNCIL WILL PURSUE OPPORTUNITIES FOR PUBLIC ACCESS TO WATER-BASED AND WATERRELATED LEISURE ACTIVITIES AND WILL SEEK TO MAXIMISE THE POTENTIAL OF OPEN WATER AREAS FOR LEISURE AND/OR NATURE CONSERVATION PURSUITS, COMMENSURATE WITH THE NEED TO SAFEGUARD THE QUALITY OF

Water areas (canals, canal basins, rivers, reservoirs, ponds and lakes) are particularly valuable because they can cater for a wide variety of different leisure interests from boating and angling to nature study and ornithology, and represent a valuable ecological resource. The Council will therefore seek to protect these resources from inappropriate development, including culverting (which fractures the continuity of the river corridor and prevents the community from appreciating the open water areas); and to enhance them, for the benefit of Hackney residents.

WATER SUPPLIES. London Borough of Hackney Adopted UDP – June 1995

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POLICIES

JUSTIFICATION

N o t e : Further policies which apply to the Regent’s Canal, Lee Navigation/Lee Valley, Stoke Newington Reservoirs, and the New River can be found elsewhere in the Open Spaces and Nature Conservation Chapter, and in the Environmental Quality Chapter. Nature Conservation OS14 Areas of Nature Conservation Importance THE COUNCIL HAS IDENTIFIED SITES OF NATURE CONSERVATION IMPORTANCE ON THE PROPOSALS MAP, AND IS CONSIDERING THE DESIGNATION OF FURTHER SITES. THE COUNCIL WILL SEEK TO DESIGNATE ONE OR MORE OF THESE AS STATUTORY NATURE RESERVES, FOLLOWING DISCUSSIONS WITH ENGLISH NATURE AND THE RELEVANT LAND OWNER AND THE PREPARATION AND AGREEMENT OF AN APPROPRIATE MANAGEMENT PLAN.

Some land in the Borough has nature conservation interest, which can contribute to the education and enjoyment of local residents. In recognition of this, the Council has identified ‘Areas of Nature Conservation Importance’. This designation need not preclude other uses and activities within the areas, but seeks to assure that any proposals within or adjacent to areas of nature conservation importance are properly assessed.

Note: Further policies applying to nature conservation can be found in the Environmental Quality Chapter.

OS15 Restriction of Development Affecting the Proposed Walthamstow Reservoirs Special Protection Area, Sites of Special Scientific Interest and Local Nature Reserves DEVELOPMENT WILL NOT BE PERMITTED CLOSE TO THE PROPOSED WALTHAMSTOW RESERVOIRS SPECIAL PROTECTION AREA, OR WITHIN OR CLOSE TO SITES OF SPECIAL SCIENTIFIC INTEREST AND LOCAL NATURE RESERVES UNLESS IT CAN BE SHOWN THAT THERE WOULD BE NO SIGNIFICANT DAMAGE TO THE NATURE CONSERVATION INTEREST. 226

The Council is empowered to declare areas as Statutory Local Nature Reserves to facilitate the protection and appropriate management of important wildlife habitats, particularly those with educational potential. Some of the areas of nature conservation interest may justify Local Nature Reserve status, but these designations will be a long-term aim due to the complexities of legal and management requirements (See Proposal 167 regarding Wenlock Basin). English Nature designates Sites of Special Scientific Interest, of which there are currently none within the Borough. However, the Borough adjoins the Wa l t h a m s t o w Reservoirs SSSI, which is part of a Special Protection Area for the conservation of wild birds. The Council will consult English Nature regarding development proposals adjoining this site or those nearby which it considers may have an impact on it and on all proposals which also require approval under the Environmental Protection Act which are within 2km of its boundary. London Borough of Hackney Adopted UDP – June 1995

POLICIES

JUSTIFICATION

OS16 Development and Areas of Nature Conservation Importance THE COUNCIL WILL NOT NORMALLY PERMIT DEVELOPMENT WITHIN AREAS OF NATURE CONSERVATION IMPORTANCE SHOWN ON THE PROPOSALS MAP, AND WILL EXPECT PROPOSALS FOR DEVELOPMENT WITHIN OR ADJACENT TO SUCH AREAS TO TAKE ACCOUNT OF THEIR ECOLOGICAL IMPORTANCE, AND GIVE ATTENTION TO THEIR PROTECTION, ENHANCEMENT AND PROPER MANAGEMENT.

OS17 Wildlife Habitats THE COUNCIL WILL SUPPORT PROPOSALS WHICH PROVIDE OR ENHANCE A RANGE OF WILDLIFE HABITATS.

Proposals for wildlife habitat creation will contribute to the increase in natural diversity. They may help to reduce some maintenance costs and give a positive role to marginal land such as verges and unused corners of recreational grounds and other small areas.

OS18 Information and Interpretation THE COUNCIL WILL SUPPORT THE PROVISION OF WILDLIFE INFORMATION AND INTERPRETATION FACILITIES AND IT WILL PROMOTE ENVIRONMENTAL EDUCATION BY ENSURING THAT ALL SCHOOLS AND LOCAL PEOPLE HAVE ACCESS TO AREAS FOR APPRECIATING AND STUDYING THE NATURAL ENVIRONMENT.


Provision of wildlife information and interpretation facilities helps to protect wildlife, and increases the opportunity for ecological awareness and education for those who live and visit the Borough, with particular benefit to those living in inner city areas.

227

POLICIES

JUSTIFICATION

Planning Standards OS19 Planning Standards THE COUNCIL WILL SEEK TO ENSURE THAT OPEN SPACE, PARKS AND NATURE CONSERVATION DEVELOPMENTS ARE SATISFACTORY IN TERMS OF: (A) AVOIDANCE OF NUISANCE, DISTURBANCE OR LOSS OF AMENITY TO SURROUNDING RESIDENTS AND OCCUPANTS; (B) ADEQUACY AND IMPACT OF ACCESS, SERVICING, CAR PARKING, REFUSE STORAGE AND OTHER ANCILLARY FACILITIES; (C) ACCESS AND FACILITIES FOR PEOPLE WITH

The Council is concerned to ensure that development is carried out in accordance with current best practice in order to help secure and improve the amenity of the Borough and its residents. It has set out the general criteria upon which it will assess development proposals, in order to ensure that they can be taken into account when it is considering planning applications. It will expect all development to have regard to Supplementary Planning Guidance which it will produce and update from time to time.

DISABILITIES AND PEOPLE WITH YOUNG CHILDREN; (D) POTENTIAL FOR MULTIPLE AND/OR SHARED USE; (E) DESIGN, MATERIALS AND IMPACT OF STRUCTURES, BUILDINGS, LANDSCAPING AND ANCILLARY FACILITIES; (F)

THE IMPACT ON THE TOWNSCAPE, AND THOSE POLICIES SET OUT IN THE ENVIRONMENTAL QUALITY CHAPTER;

AND WILL ISSUE SUPPLEMENTARY PLANNING GUIDANCE AS APPROPRIATE IN RESPECT OF SUCH CRITERIA.

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Table OSP1 Open Spaces and Parks Type & location

Main function

Characteristics

Parks and open Spaces in Hackney

Weekend and occasional visits by car or public transport.

Large areas and corridors Lee Valley Regional Park of natural heathland, downland commons, woodlands and parkland also including areas not publicly accessible but which contribute to the overall environmental amenity. Primarily providing for informal recreation with some non-intensive active recreational uses. Car parking at key locations.

Weekend and occasional visits by car and public transport, as well as District and Neighbourhood Park functions. Will attract people from all over the area.

Large-scale natural areas and/or more formal landscaped parks which usually include specialised facilities such as boating lakes, ornamental gardens, nature reserves, and formal entertainment etc. Playing fields and pitches may be provided and parking facilities are essential as some people will travel to these parks by car.

Two metropolitan parks are accessible from the Borough: Finsbury Park (just outside the northern Borough boundary) and Victoria Park (just outside the Southern Borough boundary.) Hackney Marshes and the Lee Valley Regional Park, along the eastern boundary of Hackney function as a metropolitan park. All of these parks also include designated Metropolitan Open Land.

Weekend and occasional visits as well as a neigbourhood function and significance. Will serve a number of neighbourhoods.

Open space providing a wide range of general facilities for recreation within landscaped surroundings. Facilities may include playing fields, children’s play areas, nature conservation areas and support facilities such as changing rooms, refreshments, car parking and and parks depots.

Clissold Park Hackney Downs London Fields North and South Millfields Springfield Park Well Street Common Shoreditch Park* Haggerston Park* Abney Park Cemetery (See Note overleaf)

Opportunities for active recreation as well as short duration pedestrian visits by residents and workers. May vary in function from one area to the next.

Open spaces which provide facilities for recreation within a neighbourhood area which should reflect the varied recreation needs of that particular area.

Butterfield Green Mabley Green Clapton Common Stoke Newington Common Shepherdess Walk Stonebridge Gardens Daubeney Fields.

Regional Parks Within 3.2-8 km of home and generally over 400 ha.

Metropolitan Parks Within 3 km of home and generally over 40 ha.

District Parks Within 1 km of home. Typically 10 to 15 ha. but may be up to 40 ha. (*These parks are somewhat less than 10 ha. but due to their location and range of activities justify being classified as District Parks).

Neighbourhood Parks (A modification of the Greater London Development Plan classification ‘Local Parks’) within 400m of home. Typically 6 ha.

Continued/....


229

Table OSP1 Open Spaces and Parks continued Type & location

Main function

Characteristics

Parks and open Spaces in Hackney

Short pedestrian visits by residents and workers; particularly important to older people and the less mobile.

Small open areas or squares laid out as gardens, occasionally with facilities such as children’s play areas. These open spaces are suited to informal use and should have high amenity value

Mark Street Park Hoxton Square Goldsmiths Square St. Leonard’s Gardens Clapton Pond De Beauvoir Square St. Thomas’s Square, former Burial Ground & Recreation Ground St. John at Hackney Churchyard Cassland Crescent Homerton Grove open space Marsh Hill open space West Hackney Recreation Ground Shacklewell Green Somerford Gardens Geffrey’s Gardens Shap Street Allens Gardens Aske Gardens Shore Gardens Hoxton Gardens Ufton Gardens Albion Square Clapton Square Hackney Road open space St. John the Baptist Churchyard (Shoreditch) Fassett Square St. John of Jerusalem Churchyard (by Well St Common.) Petherton Gardens Stoke Newington Church Street Gardens Kynaston Gardens Yoakley Road Memorial Gardens

Pedestrian visits

Canal towing paths, paths, disused railways and other routes which provide opportunities for informal recreation including nature conservation. Often characterised by features or attractive areas which are not fully accessible to the public but contribute to the enjoyment of the space.

Regents Canal Lee Navigation River Lee New River Holmleigh Cutting

Local Open Spaces (A modification of GLDP classification ‘Small Local Parks’) within 400m of home, of less than 2 ha.

Linear Open Spaces Variable wherever feasible

Note: A working Cemetery, designated as a Conservation Area, Statutory Local Nature Reserve and an Area of Nature Conservation Importance. It is included as an open space in Table OSP1 to ensure its protection from development. Abney Park Cemetery does not provide the recreation facilities of a District Park and the UDP does not require that it should. It does nevertheless provide for an almost unique open space experience. Table based on a modified version of the Greater London Development Plan amended by LPAC.

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Open Spaces, Parks, Green Links and Green Chains


231

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Chapter 9

Community Services INTRODUCTION STRATEGIC POLICY NATIONAL POLICY CONTEXT REGIONAL POLICY CONTEXT METROPOLITAN POLICY CONTEXT BOROUGH POLICY CONTEXT General Provision of Community Service Facilities CS1 CS2 CS3

Sites for New Development Provision of Community Facilities as Part of Development Schemes Retention of Provision of Community Facilities

Provision of Health Facilities CS4 Health Care Facilities CS5 Use of Residential Premises for Health Related Purposes Provision of Education Facilities CS6 Provision of Education Facilities The Voluntary and Community Sector CS7 Sites and Premises for Community and Voluntary Projects CS8 Places of Religious Worship General Planning Requirements CS9 Provision of Childcare Facilities CS10 Planning Standards London Borough of Hackney Adopted UDP – June 1995

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and cutbacks in both public and voluntary sector provision. The Council is determined to retain suitable sites and premises currently providing community services, and to seek alternative and additional provision, where appropriate.

Introduction 1.

This Chapter outlines the basic planning and land use requirements and needs of the Borough’s community services, some of which, such as education and social services, are primarily provided by the Council in fulfilment of its statutory obligations and functions. Others, notably health, are primarily provided by other statutory agencies. Many other community needs, and in particular cultural, social and religious needs, are primarily provided by the voluntary sector, often with the assistance of the Council and other statutory agencies.

The Council’s Strategic Policy ST43 has been formulated in accordance with national, regional and metropolitan guidance and advice, to address the B o r o u g h ’s needs as outlined in the following paragraphs. This is further reinforced and elaborated in the individual justifications of the specific policies below.

National Policy Context Strategic Policy

5.

Unlike most other aspects of land use planning central Government has not considered it necessary to issue detailed guidance and advice to the Council as to how it should provide for the land and premise needs of the Borough’s community services. The Council is advised to “consider the relationship of planning policies and proposals to social needs and problems, including their likely impact on different groups in the population such as ethnic minorities, religious groups, elderly and disabled people, single parent families, students and disadvantaged and deprived people in inner urban areas” when preparing its local plans. “Plans should also make provision for land for schools and higher education, for places of worship and other community facilities” (Planning Policy Guidance Note 12).

6.

The Council may also, subject to central Government regulation, seek to provide necessary community service facilities as part of large development schemes through planning and legal agreements as empowered by Section 106 Town and

ST43 THE COUNCIL WILL SEEK TO FACILITATE THE PROVISION OF SOCIAL AND COMMUNITY SERVICES, IN ASSOCIATION WITH THE APPROPRIATE SERVICE PROVIDERS, THROUGH THE RETENTION OF SUITABLE SITES AND PREMISES AND THE PROVISION OF ALTERNATIVE AND ADDITIONAL SUITABLE SITES AND PREMISES WHERE APPROPRIATE.

Justification 2.

3.

The Council considers that the residents and workers of Hackney must have proper and adequate access to the wide range of health, educational, social service, cultural and religious facilities necessary to address their varied and diverse needs and to enable them to participate in the life of the Borough to the fullest possible extent. Premises, sites and land used to provide these vital community services have been threatened in recent years by a combination of development pressures


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Country Planning Act 1990 and the Planning and Compensation Act 1991 as amplified by DoE Circular 16/91. 7.

In addition to the above specific planning legislation and derived central Government policy guidance and advice the Council must also consider the land use and planning implications of a much wider range of legislation controlling the provision of the Borough’s community services and in particular the: (i) Education Reform Act 1988 which transferred the former Inner London Education Authority’s role and assets to the Council, making it the primary educational provider in the Borough. (ii) National Health Service and Community Care Act 1990 which significantly alters the role of the Council from a primary provider to an ‘enabler’ of a wide range of social and caring services and facilities. This Act also has significant implications for the restructuring of the health service provision. The C h i l d r e n ’s Act 1989 embodies similar implications for the Council in respect of this particular ‘Care in the Community’ remit. iii) Sex Discrimination Act 1975 and Race Relation Act 1976 which require the Council to ensure that all community services and facilities are provided on a non-discriminatory basis. (iv) Disabled Persons Acts, 1981 and 1986 which require the Council to consider the access needs of persons with disabilities who are using community services and facilities provided in buildings open to the public.

8.

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It is probable that further legislation, possibly based on the evolving European Union social policy, will be introduced

during the envisaged life span of this Plan. This may require complementary central Government guidance and advice as to their potential planning implications.

Regional Policy Context S E R P L A N ’s Review of Regional Guidance: A new strategy for the South East 9.

SERPLAN has postulated a regional ‘vision’ emphasising the enhancement of the social infrastructure; the preservation of the ‘integrity of communities’, together with ensuring equitable access to education, health and other support services:

10. “The region should continue to develop as a location in which all the inhabitants should be able to share equitably in the region’s attractions, quality and wealth, with access to decent housing, shopping, transport and jobs and to all the education, health and other support services, and with proper provision increasingly available for women and children, the old, those with disabilities and all other groups that do not find security, safety or convenience through present arrangements”.

Metropolitan Policy Context Strategic Planning Guidance 11. Strategic Planning Guidance for London (1989) acknowledges that London must be a city where “community life can flourish” but leaves the formulation of the necessary enabling planning and land use policies to the discretion of local planning authorities. London Borough of Hackney Adopted UDP – June 1995

Strategic Planning Advice 12. Local planning authorities have been strongly advised by LPAC to encourage and facilitate the provision of the community services necessary to realise LPAC’s vision of London as a civilised city of stable and secure residential neighbourhoods “offering opportunities for all”. Central to the realisation of LPAC’s ‘Four Fold Vision of London’ is the provision of enhanced community services targeted at those areas and communities enduring severe socioeconomic and cultural deprivation. 13. In the opinion of the Council most of the Borough meets the criteria of substantial development and deprivation linked stress factors employed by LPAC to define those ‘Areas of Community Need’ and ‘Community Regeneration’ where local needs and requirements should be instrumental in shaping development strategies and proposals.

Local Policy Context

16. The Council, however, recognises that the desirability of locating community facilities in predominantly residential areas may cause problems to the detriment of residents and will therefore consider all such proposals strictly on their individual merits. 17. The Council also recognises that the provision of suitable sites and premises for community services may compete with other pressing land use needs and, in p a r t i c u l a r, housing and employment requirements and will therefore consider all such proposals in relation to the other policies of this Plan. 18. The Council strongly believes that large commercial and housing developments should make adequate provision for local community needs, and especially for t a rgeted priority needs and areas. The Council may seek to ensure the provision of such facilities through the negotiation of legal and planning agreements. The Council will also expect all new community facilities to be accessible to people with disabilities, who often have a particular need to use such services.

14. As one of the most socio-economically deprived local authority areas in the country, (Index of Local Conditions and SAUS Indices). Hackney has a substantially greater proportion of disadvantaged residents, many of them from the black and ethnic minorities, than most other London boroughs, with a correspondingly greater need and recourse to community services and facilities.

19. The general policies set out below are intended to facilitate the retention and new provision of land, sites and premises to provide community services and facilities.

15. Community services and facilities should be located as near as possible to their targeted residential catchment areas. This is a particularly important requirement in a borough with a relatively low level of car ownership and substantially worse public transport access than most other London boroughs.

20. The Council recognises that certain community services play such an important role in the life of the Borough’s communities as to warrant specific planning policies relating to the provision of health, social care, educational, voluntary sector and religious worship facilities.


General Provision of Community Service Facilities

Specific Provision of Community Service Facilities.

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P rovision of Health and Social Care Facilities 21. Access to adequate health care facilities is particularly important in a Borough with the highest census proportion of Londoners with a ‘limiting long term illness’ (14.4%), exacerbated by such a high level of socio-economic disadvantagement. Health analysts have statistically established a correlation between the Borough’s socio-economic deprivation and health care needs (Jarman 10 Indicators), which demonstrate that Hackney requires substantially more compensatory health care facilities, than other boroughs enjoying lower levels of socio-economic disadvantagement, to properly address its particular health problems as manifested, for example, in above London average death and morbidity rates (Health In Hackney 1991). Hackney residents also suff e r above average ‘lifestyle’ related diseases which the World Health Organisation has shown are substantially exacerbated by poor housing, low incomes and lack of eduction (Strategy For Health For All 2000). 22. The East London and City Health Authority (ELCHA) is the statutory agency responsible for providing hospital and community healthcare facilities in the Borough. The Council will continue to work closely with the ELCHA to ensure that its development plans properly meet the Borough’s healthcare needs, including those black and ethnic minorities particularly susceptible to ethnic linked diseases such as Thalassaemia (Cypriots), Hydatiel (Turkish/Kurdish) and Sickle Cell Anaemia (Afro Caribbean), or requiring culturally sensitive health care. The Council, however, has no powers to direct the Health Authority to respond to the health needs of the Borough’s residents. 23. Following a long period of hospital site and premise rationalisation and relocation, the Borough now has only one 238

general purpose hospital (Homerton). The ELCHA intends during the lifespan of the Plan to further expand the Homerton Hospital and provide new specialised services, such as provision for the mentally ill, on the site of the former Hackney Hospital. The Council will ensure that all new health care provision is undertaken in accordance with the provisions of the Department of Health Circular HSC (IS) 207 which requires the ELCHA to properly consult with Borough representatives, and provide alternative facilities. 24. No other large scale land requirements for appropriate hospital purposes are envisaged during the life span of this Plan by the Health Authority who have been compelled by central Government to make major changes in the provision of health care, which in the opinion of the Council are not in the best interest of the Borough’s residents. 25. Opportunities may arise for the recycling of sites and premises no longer required by the ELCHA and the Council will endeavour to ensure that alternative community uses are found for such sites and premises wherever feasible. 26. The provision of non-hospital based community health care, such as doctors, dentists and opticians, many of whom are currently located in unsuitable premises, with serious access problems for the elderly and people with disabilities, is the responsibility of the City and East London Family Health Services Authority (FHSA), who currently operate as a ‘joint commissioning authority’ with the ELCHA. 27. The Borough’s 128 General Practitioners (doctors) are organised into 55 practices, of which 19 are single doctor practices. 73 doctors belong to the 22 practices with three or more doctors, this type of larger practice, able to provide other paramedical and health care facilities, is London Borough of Hackney Adopted UDP – June 1995

increasingly regarded as the norm for the provision of a satisfactory level of community health care. A substantial number of GPs either require new premises or major refurbishment of their existing buildings and so the FHSA proposes major investment to upgrade at least 20 practices during the life span of this Plan. 28. Opticians and dentists also have substantial premise needs. With only 65 dentists the Borough currently provides substantially below average London dental care provision for its residents. Pharmacists are often an important source of health care information and so, in view of the Borough’s insufficient number of general medical practitioners, it is particularly unfortunate that Hackney has substantially below the London average number of pharmacists (50). The growing number of alternative and traditional healthcare practitioners, often serving specific ethnic needs, also require a substantial number of suitable sites and premises.

services. The Council has prepared a Community Care Plan to implement its enhanced, if modified, enabling role in the provision of a wide range of caring services and facilities, many of which will be provided by private or voluntary sector agencies. 31. Policies facilitating the implementation of the Council’s social services and care in the community role are contained in other chapters of this Plan and in particular HO17 (Residential Accommodation for Care) and E15 (Employment Training). Provision of Education Facilities 32. Providing for the education needs of the Borough currently requires a significant amount of land. While there may be some scope for the rationalisation of some educational institutions acquired by the Borough from the former ILEA, there is unlikely to be any significant change in the number of pupils (25,000) attending the Council’s ten secondary, sixty-two primary, seven special education and two nursery schools during the life of this Plan.

29. Provision must also be made for specialist health care facilities such as family planning clinics and HIV advice centres. The Council will work closely with the FHSA to ensure that all community health care facilities are satisfactorily accommodated and distributed throughout the Borough and are readily accessible to all residents, including those with mobility disabilities. The Council may seek, in accordance with other policies in this Plan, the provision of essential health care facilities as part of large mixed use development schemes.

33. Substantial growth is, however, anticipated in the Post-16 and community education areas with the Hackney Community College relocating on a central seven acre campus in the Hoxton area, representing one of the lar g e s t further education infrastructural developments in the country. Other higher education opportunities are also provided by those parts of the City and East London College, the London College of Fashion and the Cordwainer Te c h n i c a l College which are located in the Borough.

30. The Council, itself, is the statutory enabling and regulating agency for the provision of many types of social care services and facilities such as homes for the aged, children’s residential homes, and day centres to meet a wide range of specialists needs and general social

34. Many of the Borough’s schools are also used to provide day and evening courses o rganised by the Hackney Community College and the Council would wish to see further general community use for a wide range of leisure and recreational activities of its educational premises in so


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far as they do not conflict with their primary educational role. 35. The Council directly provides several secondary and primary schools to cater for particular religious needs (Protestant, Catholic and Jewish) but recognises that there will be a continuing requirement to facilitate sites and premises for independent, religious based, schools in the Borough. It is estimated that 3,500 pupils, some of them non-Borough residents, attend over twenty Orthodox Jewish Schools in the Stamford Hill area, many of which are based in unsatisfactory premises in predominantly residential areas. There is also a growing demand for Islamic education, both full time and for after school, religious instruction, and supplementary (Saturday) schools organised by black and ethnic minority community groups. 36. H a c k n e y ’s multi-cultural diversity is reflected both by the fact that its pupils speak over one hundred languages and by its ‘show case’ selection to house the proposed London School of Economics European Centre for the Study of Cultural Diversity. 37. Further details of the Borough’s education needs and the Council’s provision may be found in the Hackney Education Development Plan, and the Community Education Development Plan. The Voluntary and Community Sector 38. The Council recognises the extent to which voluntary and community agencies complement and assist the statutory service providers in the Borough, in addition to providing a wide range of nonstatutory services and facilities often t a rgeted at the most disadvantaged communities and sectors. The Council, in particular, recognises the importance of the role of the community self or g a n i s e d agencies in sustaining and servicing the specific needs of the black and ethni c minority communities. 240


POLICIES

JUSTIFICATION

General Provision of Community Service Facilities CS1 Sites for New Development THE COUNCIL WILL SAFEGUARD THE SITES AND BUILDINGS SHOWN ON THE PROPOSALS MAP FOR HEALTH, EDUCATION, SOCIAL SERVICES, NURSERY, CULTURAL OR RELIGIOUS DEVELOPMENT.

Safeguarding of sites and buildings is necessary to ensure that sufficient land and/or buildings are available to meet the needs of existing development programmes. In some cases community facilities on the identified sites may be provided as part of mixed use schemes, where the Council is satisfied that this is the only way of ensuring a viable community development.

CS2 Provision of Community Facilities as part of Development Schemes THE COUNCIL MAY REQUIRE NEW HOUSING AND COMMERCIAL DEVELOPMENTS TO PROVIDE COMMUNITY FACILITIES APPROPRIATE TO THE SCALE OF DEVELOPMENT.

Where new development is likely to increase demand for health, education and other community services it is essential that consideration is given at the earliest possible stage to the social and welfare needs of residents and workers. The different site and premise requirements inherent in the devolution of care and community provision, such as ‘care in the community’ and the enhanced emphasis on ‘community health care’, mean that a variety of sites and premises will be required. Thus, all significant housing and commercial proposals must be assessed to determine both their impact on often already stressed local community facilities and their potential to enable the requisite enhancement of community facilities through multi-agency partnership mixed-use developments.

CS3 Retention and Provision of Community Facilities THE COUNCIL WILL SEEK TO ASSURE THE RETENTION AND PROVISION OF COMMUNITY FACILITIES AND WILL: (A) FOLLOWING CONSULTATION WITH THE APPROPRIATE SERVICE PROVIDER, ONLY SUPPORT, THE CHANGE OF USE OR


The Council recognises that existing community services face both the pressures of a projected increase in population and the constraint of a general lack of suitable land and buildings that are readily available for community purposes. In this situation, the Council is required not only to protect the 241

POLICIES REDEVELOPMENT OF AN EDUCATION, HEALTH, OR SIMILAR FACILITY IF ADEQUATE REPLACEMENT PROVISION HAS BEEN MADE; (B) SEEK TO RETAIN FOR OTHER COMMUNITY USES, WHERE APPROPRIATE, BUILDINGS AND SITES WHICH ARE SURPLUS TO SERVICE REQUIREMENTS. WHERE NO COMMUNITY USE CAN BE IDENTIFIED, THE COUNCIL WILL PREPARE A PLANNING AND TECHNICAL BRIEF FOR OTHER USES.

JUSTIFICATION

existing level of community services, but at the same time, seek to accommodate existing unmet and newly arising community needs. The Council acknowledges that the service providers have their own objectives and policies, but will expect the appropriate service provider to undertake proper consultation with Borough residents and their elected representatives, as appropriate, when determining how best their needs can be met by current site service provision, or through alternative, readily accessible, replacement provision. The Council will also expect community services needs and requirements to be accorded proper weight when considering new uses for sites and premises housing existing community facilities which become surplus to service delivery needs and requirements.

Provision of Healthcare Facilities CS4 Provision of Healthcare Facilities THE COUNCIL WILL FAVOURABLY CONSIDER PROPOSALS FOR HEALTHCARE FACILITIES, CLINICS, HOSPITALS AND OTHER HEALTH RELATED PURPOSES SO AS TO ENSURE THAT ALL RESIDENTS HAVE EASY AND CONVENIENT ACCESS TO AN APPROPRIATE HEALTH FACILITY.

CS5 Use of Residential Premises for Health Related Purposes THE COUNCIL WILL FAVOURABLY CONSIDER PROPOSALS FOR THE USE OF RESIDENTIAL PREMISES FOR HEALTH RELATED PURPOSES IN ACCORDANCE WITH POLICY HO8 AND SUBJECT TO NO ADVERSE DETRIMENTAL IMPACT ON EXISTING RESIDENTIAL AMENITIES.

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Many of the Borough’s current health service providers, and in particular doctors and dentists, are often located in old and unsuitable premises, and require new sites and premises to accommodate the larger scale family health clinics and surgeries, which would provide a better standard and range of community health services. The Council will endeavour to assist the ELCHA and FHSA in implementing their development strategies to ensure that the development and enhancement of their services are located in areas and premises which best meet the needs of Borough residents. In addition to these needs, the growing number of alternative, traditional and para-medical practitioners, often catering for specific ethnic minority needs, also require suitable sites and premises. In some cases these needs can be satisfactorily provided through the use of premises formerly in residential use, in accordance with Policy HO8(D). However, in all such cases where planning permission is required, the Council London Borough of Hackney Adopted UDP – June 1995

POLICIES

JUSTIFICATION

must be satisfied that there will be no unacceptable detrimental impact on residential amenities and the environment.

Provision of Education Facilities CS6 Provision of Education Facilities THE COUNCIL WILL FAVOURABLY CONSIDER PROPOSALS FOR EDUCATION FACILITIES APPROPRIATE TO LOCAL NEEDS AND REQUIREMENTS, SUBJECT TO OTHER POLICIES IN

The Council will endeavour to facilitate the B o r o u g h ’s diverse education needs and requirements, subject to other Plan policies and, in particular, Policies HO8(D) and OS7.

THIS PLAN.

The Council recognises that as a result of a shortage of suitable alternative sites many independent, religious based, schools are located in former residential premises. The Council will permit the continuation of such educational uses provided the Council is satisfied that there will be no unacceptable detrimental impact on residential amenities and the environment. The provision of pre-statutory age facilities for young children, such as nursery schools, playgroups and creches, must conform with the appropriate regulations of the Children’s Act 1989 and the relevant registration, supervision and amenity requirements of the Borough’s Social Services. The Voluntary and Community Sector CS7 Sites and Premises for Community and Voluntary Projects THE COUNCIL WILL ENCOURAGE COMMUNITY AND VOLUNTARY GROUPS TO SECURE APPROPRIATELY LOCATED SITES AND PREMISES SUBJECT TO OTHER POLICIES IN THE PLAN. ADDITIONALLY, IN ASSESSING DEVELOPMENT PROPOSALS IN SPRINGFIELD, NORTHFIELD, NORTHWOLD AND NEW RIVER WARDS THE COUNCIL WILL HAVE REGARD TO THE CULTURAL,

The Council recognises the need for ethnic and religious groups to obtain facilities for education and cultural development in accessible and convenient locations. The greater involvement of voluntary and community groups in the provision of services has increased the demand for local and adaptable premises. Numerous services are now provided from shops and other premises.

RELIGIOUS AND WELFARE NEEDS OF THE ORTHODOX JEWISH COMMUNITIES. SIMILARLY, IN STOKE NEWINGTON, DALSTON AND MARE

In this context, given the heavily built-up nature of the Borough, it will often be

STREET STRATEGIC AND MAIN SHOPPING London Borough of Hackney Adopted UDP – June 1995

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POLICIES CENTRES THE COUNCIL WILL HAVE REGARD TO THE CULTURAL, RELIGIOUS AND WELFARE NEEDS OF BLACK AND ETHNIC MINORITY GOUPS IN HACKNEY.

JUSTIFICATION

necessary to give sympathetic consideration to the adaption of residential and similar properties for community purposes. Furthermore, the retention of these services is vital and so any development in the areas mentioned must be assessed by its impact upon them.

CS8 Places of Religious Worship THE COUNCIL WILL FAVOURABLY CONSIDER PROPOSALS FOR CHURCHES, MOSQUES, SYNAGOGUES, GURUDWARAS, TEMPLES AND OTHER PLACES OF RELIGIOUS WORKSHIP, SUBJECT TO OTHER POLICIES IN THIS PLAN.

Many of the Borough’s communities and, in p a r t i c u l a r, the black and ethnic minorities, require appropriate premises and facilities for the purpose of religious worship. The Council will favourably consider the retention of existing places of religious worship located in residential areas subject to other Plan policies and, in particular, Policy HO8(D). Note: The Council’s policies towards the use for community services of shop units or accommodation above shop units are set out in Chapter Seven, Retailing and To w n Centres; Policy R7 is particularly relevant.

General Planning Requirements CS9

Provision of Childcare Facilities

IN ALL NEW PUBLIC BUILDINGS AND WORKPLACES THE COUNCIL WILL SEEK TO ENSURE ADEQUATE PROVISION IS MADE FOR CHILDCARE FACILITIES BY THE PROVISION OF BABY CHANGING ROOMS, CRECHES OR NURSERIES APPROPRIATE TO THE NEEDS OF PEOPLE WITH CHILDCARE RESPONSIBILITIES WHO USE OR VISIT THE PREMISES, AND TO THE SCALE AND CHARACTER OF THE DEVELOPMENT.

The Council is concerned to take every opportunity for childcare provision, particularly where this will ensure equal opportunity for people with children to enjoy the facilities of public buildings and in gaining access to job opportunities in workplaces where the enterprise scale warrants the provision of childcare facilities for employees. New development which will attract substantial numbers of visitors or workers will be expected to include childcare facilities. The nature and scale of facilities required will be judged on the individual circumstances of the scheme. Where planning obligations are

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POLICIES

JUSTIFICATION

appropriate, the Council will follow the guidelines set down in Policy ST3. The failure to provide benefits not related to the development or necessary to the granting of planning permission would not constitute grounds for the Council to refuse an otherwise acceptable planning application. Provision of childcare facilities must conform with the appropriate regulations of the C h i l d r e n ’s Act 1989 and the relevant registration, supervision and amenity requirements of the Borough’s Social Services.

CS10 Planning Standards THE COUNCIL WILL SEEK TO ENSURE THAT COMMUNITY SERVICES DEVELOPMENTS ARE SATISFACTORY IN TERMS OF THE FOLLOWING CRITERIA AND WILL ISSUE SUPPLEMENTARY PLANNING GUIDANCE AS APPROPRIATE IN RESPECT OF THESE CRITERIA (A) THE DISTRIBUTION OF SIMILAR FACILITIES WHICH SERVE THE SAME GROUP OF RESIDENTS; (B) THE DISTRIBUTION AND COMPOSITION OF BLACK AND ETHNIC MINORITY RESIDENTS OR OTHER CLIENT GROUPS; (C) IMPACT ON SURROUNDING RESIDENTS; (D) CAR AND CYCLE PARKING, SERVICING AND ACCESS; (E) ACCESS AND FACILITIES FOR PEOPLE WITH DISABILITIES AND PEOPLE WITH YOUNG CHILDREN; (F)

THE IMPACT ON THE TOWNSCAPE, AND THOSE POLICIES SET OUT IN THE ENVIRONMENTAL QUALITY CHAPTER.


The Council is concerned to ensure that community service development is carried out in accordance with current best practice in order to help secure and improve the amenity of the Borough and its residents. It has set out the general criteria upon which it will assess community services development proposals, in order to ensure that they can be taken into account when it is considering planning applications. It will expect all community services development to have regard to supplementary planning guidance which it will produce and update from time to time to provide guidance for developers. The Council expects all community service facilities to be properly integrated with neighbouring uses and incorporate the highest possible design, access and environmental standards. The Council will require all new developments providing community services to provide satisfactory childcare and access facilities and to be constructed in a design appropriate to the local townscape. The Council is anxious to ensure that community services and facilities are provided appropriate to the area and the particular client group. 245

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Chapter 10

Arts, Culture and Entertainment INTRODUCTION STRATEGIC POLICIES NATIONAL POLICY CONTEXT REGIONAL POLICY CONTEXT METROPOLITAN POLICY CONTEXT LOCAL POLICY CONTEXT Arts, Culture and Entertainment Development ACE 1 New Arts, Culture and Entertainment Development ACE 2 Promoting the development of Arts, Culture and Entertainment Facilities ACE 3 Retention of Arts, Culture and Entertainment Buildings Incorporating Arts, Culture and Entertainment in the Physical Environment ACE 4 Art and Art Space ACE 5 Percent for Art ACE 6 Arts and Open Space Tourism ACE 7 Hotel Development Planning Standards ACE 8 Planning Standards


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opportunities for social interaction. In the economic context, ACE activities are making an increasing contribution to the national economy with employment within this sector expanding rapidly.

Introduction 1.

Arts, Culture and Entertainment (ACE), play an important role in the social, economic and physical aspects of the Borough’s development. ACE activities can help to build a sense of belonging to the ‘Community’ or enhance the B o r o u g h ’s image through prestige initiatives as well as generating a spirit of civic pride. A fine example of this is the Council’s Hackney Show.

2.

It is important that ACE activities are defined in their broadest context, taking into account the needs of different groups within Hackney’s diverse community. Such a definition includes not just the traditional performing and visual arts, but the contemporary cultural industries such as publishing, fashion, video production, cinema, radio and other entertainment activities. These activities should be developed in such a way to be accessible and relevant to all sectors of the community.

3.

In the physical environment the arts can be expressed through the design of buildings and urban spaces, through the involvement of artists, crafts people and the community. The creation and enhancement of public spaces, pedestrian routes, and buildings can incorporate art into all aspects of their design and development. Art plays an important role in improving the fabric of the physical environment, imparting a sense of place and visual imagery.

5.

Strategic Policies ST44 THE COUNCIL WILL SEEK TO RETAIN EXISTING ARTS, CULTURE AND ENTERTAINMENT FACILITIES AND WILL ENCOURAGE THE PROVISION OF NEW FACILITIES TO MEET LOCAL AND WIDER NEEDS

Justification 6.

4.

In the social context, ACE activities can play an important integrating role, by initiating, describing and communicating a sense of community and place. For example, theatre productions reflecting local issues or the design of buildings relating to an area’s heritage as well as its more modern role. In addition it extends the breadth of leisure provision and


Tourism is one of London’s fastest growing industries and employers, with the potential for growth up to the end of the century. It has close links with ACE and leisure and sporting activities. Tourism therefore has an important role to play in the local economy, providing opportunities for employment directly and indirectly. It can also support a wide range of local services and facilities used by local residents, for example helping to maintain the vitality and cultural diversity of town centres. The impact of current and forecast numbers of tourists is concentrated in key areas of London’s West End. In order to disperse the benefits of tourism outwards to the rest of London, low cost accommodation needs to be made available in areas with good transport links.

ACE activities make a unique contribution to London’s role as a capital city and international centre, a strategic function which the Boroughs have a responsibility to sustain. They also provide an outlet for Borough residents’ and workers’ leisure time and for their different cultural aspirations. They can add significantly to the vitality of the community, the local economy and the 249

environment of the Borough’s town centres. As London moves into the 21st century quality of life issues will assume increasing importance and ACE will make a growing contribution to this while enhancing and consolidating new employment opportunities. However, the sites and buildings ACE occupy are frequently vulnerable to competition from other land uses and need the protection of the planning process. ST45 THE COUNCIL WILL ENCOURAGE THE PROVISION OF TOURIST FACILITIES AND VISITOR ACCOMMODATION IN APPROPRIATE LOCATIONS

Justification 7.

The joint London Tourist Board/LPAC Tourist Impact study calculated that approximately 19,000 additional hotel rooms would be required in London by the end of the century, based on a continued growth in tourism expected throughout the 1990s, predominantly from overseas visitors.

8.

Seventy-five percent of London’s hotel stock is concentrated in the boroughs of Westminster, Kensington & Chelsea and Camden. Strategic Guidance has conceded that because of the effect on residential amenity, boroughs such as Westminster and Kensington & Chelsea can accept restrictive policies on hotel development. This will push the pressure for hotel development outwards to adjoining boroughs who have good transport links with Central London.

9.

New tourist and visitor attractions and associated hotel development will be encouraged in the Borough where they can help support and regenerate the local economy provided that they are located where they do not conflict with residential amenity and are convenient for public transport in order to maximise their accessibility. Developments involving existing tourist and visitor

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attractions will be encouraged providing they do not have an adverse effect on the amenity for nearby residents.

National Policy Context 10. London, as the nation’s capital city is able to make a significant contribution to the economic prosperity of the country as a whole. However, there will soon be increasing competition from our European counterparts, particularly Paris, as we move towards the single European market. If London is to maintain its prestige position, and increase its economic prosperity, London will have to be fully exploited as a major European city of culture and as an attractive tourist destination. 11. Many countries have recognised that the environment and the economy are inextricably linked and an improved environment increases their competitiveness. The environment in its widest sense includes the provision that is made for leisure, the arts, and visitors, as well as a physically attractive environment. Cities such as Paris and Edinburgh have recognised this and have been investing in all aspects of ACE. It is important that the role of ACE and tourism in maintaining and improving the competitiveness of London and the South East is recognised and acted upon if the region is to contribute to the prosperity of the nation.

Regional Policy Context 12. Maintaining and expanding the art, leisure, tourism and environmental attributes of the region will play a major role in exploiting the potential of the South East region focussing on London, London Borough of Hackney Adopted UDP – June 1995

as it experiences increased competition from other world cities, and the single European Market. 13. SERPLAN in its “Shaping the South East Planning Strategy”, endorses these issues in its vision for London, and advises London Boroughs “to maintain the quality of the physical and business environments, and the range of arts, cultural, entertainment, and tourist attractions in London”. 14. The Council will work where appropriate with London Arts Board (LAB) and the Arts Council of Great Britain to identify gaps in the pattern of cultural provision to London and the South East, endeavouring to identify opportunities to locate new ACE facilities of strategic importance within the Borough.

Metropolitan Policy Context 15. Traditionally London with its range of historical and cultural assets has acted as an international centre for art, culture and tourism. These factors have reinforced London’s attractiveness to commerce and industry by providing an attractive social and physical environment. Hackney with its range of artistic community and multicultural assets can make a particularly important contribution to this Londonwide attractiveness. 16. ACE activities play an important role in achieving four of the overall objectives of Strategic Guidance, namely: fostering economic growth; revitalising urban areas; maintaining the vitality of town centres and prioritising the environment. 17. L PA C ’s “1994 Advice on Strategic Planning Guidance for London” states that “the ACE sector is a significant employer in London. It has an important bearing on other activities, especially the London Borough of Hackney Adopted UDP – June 1995

night-time economy. It contributes significantly to the vitality of London, especially that of its town centres and Central London, and to its role as a world c i t y. It has great symbolic power in creating and strengthening the Capital’s image and plays a special role in the promotion of London. It meets strategic and local cultural needs and has considerable potential to assist urban renewal.” 18. LPAC recommends boroughs to “provide support: to secure selected large sites and a range of smaller premises for use by creative industries of different sizes; to encourage the re-use by these activities of surplus office floorspace and to integrate this action in appropriate locations with wider initiatives for Cultural Quarters and urban regeneration.” (E19); and “maintain, protect, enhance and integrate provision for ACE facilities within the specific guidelines in paragraphs 3.40-43 especially those for Cultural Quarters, Theatreland, Areas of ACE Excellence, and Opportunity Areas, Areas for Community Regeneration, and arts in the public realm.” (E20)

Local Policy Context 19. Hackney has a larger creative and artistic community per head of population than any other area in western Europe. Growth in arts activities has been identified and fostered in the borough since the 1970s with considerable benefits for the cultural life of the area. This is coupled with the second largest number of London’s grant aided groups. Almost half of the population is made up of black and other ethnic minority communities including African, Caribbean, Asian, Cypriot, Turkish/Kurdish, Orthodox Jewish, Irish. This rich cultural diversity is reflected in the balance of arts organisations and individual artists in the Borough. 251

20. ACE activities can play an important role in the Borough: (i)

they act as a magnet, attracting people, tourism, businesses and jobs to an area;

(ii)

they play an important educational and empowering role, contributing to the development of imaginative, communicative, linguistic and intellectual skills;

(iii)

they enhance the visual quality of the built environment;

(iv)

they provide a focal point for community pride and identity and enable people to express their cultural and local identity.

21. There are a wide range of ACE activities and tourist facilities situated within the Borough. These include museums, galleries, theatres and performing arts in general, community and voluntary arts bodies, cultural industries, graphic designers, buildings and spaces of artistic and cultural quality and other popular commercially based entertainment facilities such as night clubs and bingo halls. Their importance ranges from the national to the local level. These ACE resources are largely concentrated in the centre of the Borough, and while in many cases they are individually excellent, they have on the whole failed to achieve their full impact on the economic, environmental and social fabric of the Borough. 22. As a result there is a need to build upon these existing ACE assets, through a Council-wide arts strategy. The ACE policies are intended to provide a broad planning framework in support of such an approach. There are also a number of areas of opportunity in which the development of ACE activities can play an important role. These include the development of Mare Street and Dalston with its important Ridley Road Market, and the emergent cultural centre of South Shoreditch.

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POLICIES

JUSTIFICATION

A rts, Culture and Enter t a i n m e n t Development ACE1New Arts, Culture and Entertainment Development THE COUNCIL WILL SUPPORT THE DEVELOPMENT OF NEW ARTS, CULTURE AND ENTERTAINMENT FACILITIES SUBJECT TO OTHER POLICIES IN THE PLAN AND CONSIDERATION OF: (A) LONDONWIDE AND LOCAL COMMUNITY NEEDS; (B) DETAILED DESIGN, LAYOUT AND ACCESS

As a general principle the Council wishes to support the development of new Arts, Culture and Entertainment buildings and facilities, particularly where they meet unmet demands from the local community and London as a whole. ACE facilities provide welcome employment and can act as an aid to economic regeneration.

CONSIDERATIONS, PARTICULARLY THE LIKELY IMPACT ON NEIGHBOURING USES AND THE ENVIRONMENT OF THE IMMEDIATE AREAS; (C) THE PROVISION OF SATISFACTORY MEANS OF ACCESS AND FACILITIES FOR PEOPLE WITH DISABILITIES AND FOR PEOPLE WITH

Large ACE developments would normally be considered unsuitable in residential areas due to their effects on the amenity and character of such areas, although small schemes serving a local need may be acceptable. Large proposals will only be permitted in town centres which can support and benefit from the proposal.

YOUNG CHILDREN.

The provision of adequate access and facilities for people with disabilities is considered vital. Similarly, the provision of facilities for people with children will particularly benefit women who bear the main responsibilities for the care of children.

ACE2 Promoting the Development of Arts, Cultural and Entertainment Facilities THE COUNCIL WILL GIVE FAVOURABLE CONSIDERATION TO MIXED USE DEVELOPMENTS WHICH INCORPORATE ARTS, CULTURE AND ENTERTAINMENT FACILITIES, SUBJECT TO OTHER POLICIES IN THE PLAN.


The benefits of ACE activities to the community are enhanced if their provision is integrated with that for other land uses e.g. by generating an “evening economy” in a town centre, by using public art to improve the attractiveness of housing estates or shopping areas, or by extending the uses of open space by encouraging use for performing arts.

253

POLICIES

JUSTIFICATION

ACE3Retention of Arts, Culture and Entertainment Buildings THE COUNCIL WILL NORMALLY RESIST THE LOSS OF AN ARTS, CULTURE AND ENTERTAINMENT FACILITY UNLESS IT IS SATISFIED THAT AN ADEQUATE REPLACEMENT WILL BE MADE OR A CONTINUED ARTS, CULTURE OR ENTERTAINMENT USE IS NO LONGER REQUIRED.

ACE buildings often act as local landmarks, helping give a place a sense of identity. They provide much valued facilities for activities and leisure needs within the local, and wider community. The sites and buildings ACE uses occupy are frequently vulnerable to competition from other land uses and hence need the protection of the planning process. In order to reduce the ‘hope value’ associated with redevelopment, the Council will normally resist the redevelopment of ACE buildings for other than ACE use.

Incorporating Arts, Culture and Entertainment in the Physical Environment ACE4 Art and Art Space THE COUNCIL WILL ENCOURAGE THE PROVISION OF NEW WORKS OF ART OR PERFORMING ART SPACE AS PART OF NEW DEVELOPMENT.

Art plays an important role in improving the fabric of the physical environment, imparting a sense of place and identity. All aspects of the built environment, including the urban spaces between buildings can benefit from the incorporation of art into the physical fabric. The provision of space for performing art adds to the quality and cultural experience of life and provides opportunities for social interaction.

ACE5 Percent for Art THE COUNCIL WILL ENCOURAGE THE VOLUNTARY PROVISION OF PUBLIC ART AS A COMPONENT OF MAJOR DEVELOPMENTS BY ADOPTING THE ARTS COUNCIL’S ‘PERCENT FOR ART’ SCHEME.

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‘Percent for Art’ is a national scheme promoted by the Arts Council which involves setting aside a proportion of the development costs for a building or other development for the provision of works of art, craft or decoration associated with it. The Arts Council suggest a sum equivalent to 1% of the development costs. In addition, contributions may also be directed towards the development of art, cultural or entertainment provision that meets the needs of the community. The percent for art scheme should not be confused with the promotion of art through the design London Borough of Hackney Adopted UDP – June 1995

POLICIES

JUSTIFICATION

and layout of buildings, but should be in addition to the existing development budget. Percent for art benefits developers by creating more attractive buildings, giving developers greater prestige, interest or individuality which enhances corporate image and reputation, and enhances the long term value of developments. In addition such buildings will contribute to upgrading the areas in which they are located, thereby indirectly benefiting the development.

ACE6 Arts and Open Space THE COUNCIL WILL GIVE FAVOURABLE CONSIDERATION TO ARTS, CULTURE AND ENTERTAINMENT FACILITIES WHICH ENHANCE OPEN SPACES THROUGH THE PROVISION OF OPEN-AIR PERFORMANCE SPACES, SCULPTURE AND VISUAL IMAGERY AND AREAS FOR CULTURAL EXHIBITIONS, SUBJECT TO OTHER

Open spaces offer suitable locations for certain ACE initiatives, which in turn increase the attractiveness of spaces often criticised for their lack of interest and facilities. A prime example of this is the Broadgate development (which due to the boundary changes has now been transferred to the City.)

POLICIES IN THIS PLAN.

Tourism ACE7 Hotel Development THE COUNCIL WILL FAVOURABLY CONSIDER HOTEL DEVELOPMENT SUBJECT TO OTHER POLICIES IN THE PLAN, IN THE FOLLOWING LOCATIONS SHOWN ON THE PROPOSALS MAP:(A) THE HOTEL DEVELOPMENT SITE(S); (B) THE DALSTON TOWN CENTRE AND THE

The joint London Tourist Board/LPAC Tourist Impact study calculated that approximately 19,000 additional hotel rooms would be required in London by the end of the century, based on a continued growth in tourism expected throughout the 1990s predominantly from overseas visitors.

MARE STREET AND STOKE NEWINGTON MAIN SHOPPING CENTRES; AND (C) ELSEWHERE ON SITES HAVING GOOD PUBLIC TRANSPORT LINKS WHICH ARE NOT LOCATED IN PREDOMINANTLY RESIDENTIAL AREAS.


The Council accepts these forecasts and will work with the London Tourist Board and Convention Bureau to promote tourist related development in the Borough within a Londonwide framework, and to secure the economic benefits of this form of development for local people. However, hotels should be sensitively located as they constitute an intensive form of land use and can create severe environmental problems in surrounding areas. 255

POLICIES

JUSTIFICATION

Planning Standards ACE8 Planning Standards THE COUNCIL WILL SEEK TO ENSURE THAT ARTS, CULTURE AND ENTERTAINMENT DEVELOPMENTS ARE SATISFACTORY IN TERMS OF: (A) AVOIDANCE OF NUISANCE, DISTURBANCE OR LOSS OF AMENITY TO SURROUNDING RESIDENTS AND OCCUPANTS; (B) ADEQUACY AND IMPACT OF ACCESS, SERVICING, CAR PARKING, REFUSE STORAGE AND OTHER ANCILLARY FACILITIES; (C) ACCESS AND FACILITIES FOR PEOPLE WITH DISABILITIES AND PEOPLE WITH YOUNG

The Council is concerned to ensure that development is carried out in accordance with current best practice in order to help secure and improve the amenity of the borough and its residents. It has set out the general criteria upon which it will assess development proposals, in order to ensure that they can be taken into account when it is considering planning applications. It will expect all development to have regard to supplementary planning guidance which it will produce and update from time to time.

CHILDREN; (D) DESIGN, MATERIALS AND IMPACT OF STRUCTURES, BUILDINGS, LANDSCAPING AND ANCILLARY FACILITIES; AND (E) THE IMPACT ON THE TOWNSCAPE AND THE POLICIES SET OUT IN THE ENVIRONMENTAL QUALITY CHAPTER.

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Chapter 11

Planning Standards ● This chapter sets out development standards which will be used by the Council in considering planning applications. The standards have been devised to ensure that developments achieve an acceptable environmental standard and comply with the policies contained in this Plan. These standards form part of, and should be read in conjunction with, relevant policies in the UDP. ● The standards will not be applied inflexibly, but should normally be considered as the minimum standard acceptable to the Council. Where special circumstances warrant it, the Council may require higher standards. ● This chapter brings together existing standards used by the Council, which have been reviewed and updated where necessary. In addition to this Chapter, reference should also be made to the Council's Supplementary Planning Guidance notes, copies of which are available from the Planning Service.

ACCESS AND ENGINEERING STRATEGIC VIEWS


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258


Access and Engineering Turning Arrangements (Standard 1)

Introduction The Council’s road and footway standards are based on a hierarchy of roads set out in the Unitary Development Plan. The hierarchy is made up of the following categories of road: ●

Primary roads provide for longer journeys and link London with the national road system. ● Secondary roads provide links with primary road, access to shopping and industrial areas, carry short and medium distance traffic, and main bus routes. ● Local distributor roads provide for traffic moving between the Secondary road network and local neighbourhoods. Most two-way estate roads are in this category. ● Local access roads serve homes and workplaces. For the necessary standards of roads, footways, drainage and street lighting, please contact the Council’s Chief Civil Engineer. Standard 1: Turning Arrangements

The following diagrams give the minimum dimensions required. See Turning Dimension table for details of turning arrangements for different vehicle types. Turning Dimension Table (Standard 1) 10m Rigid 15.5m Vehicle (m) Artic (m) a. b. c. d. e. f. g. h. i. j. k. l. m.

5.75 6.25 6.0 6.0 6.0 5.5 9.0 6.0 6.0 8.0 6.0 5.0 6.0


2.0 10.0 9.0 6.0 6.0 14.5 9.0 6.0 6.0 17.0 9.0 7.0 6.0

Refuse Vehicle (m) 5.75 5.25 6.0 4.8 5.0 2.5 6.0 4.8 4.8 7.0 6.0 5.0 4.8

Standard 2: Sight Lines and Visibility Splays

Visibility splays allow drivers to clearly see pedestrians approaching a junction and should be set out as in Diagram (a). Sight lines allow drivers to see vehicles on the main road they wish to join at suff i c i e n t distance to allow them to judge their entry onto the main road safely. (See Diagram (b)). The main factors that determine the dimensions required for the sight lines corridor are the speed of vehicles on the road being entered and the type and volume of traffic entering, however, the table opposite gives a guide to the dimensions that might be required at different junctions. Sight Lines and Visibility Splays (Standard 2) Type of road (in metres)

x

y

a

Access road with units maximum 140m2 gross floor area

3

50

3

Access road with units maximum 930m2

4.5

60

4.5

All other access roads

6

70

6

Estate road adjoining a trunk road

9

90

9

259

Visibility Splays (Standard 2) Diagram (a)

Sight Line Corridor (Standard 2) Diagram (b)

sightline corridor

visibility splay

Standard 3: Parking Standards

Parking control is seen by the Council as an important element in supporting its overall transport policy. Accordingly, the Council has specified the number of vehicle parking spaces it wishes to see provided for various types of development. The specified parking

standards and parking layout will be used for development control purposes. The Parking Standards, in general, apply to all new development and redevelopment including conversions, extensions and changes of use.

Residential Parking Standards Use

Area

Requirement

New Development

Whole Borough

In general terms, off-street provision will be within the range 0.5 to 1 car space per dwelling. The exact requirement will be determined with respect to the following: (i) the existing and future supply of on-street parking in the adjoining area; (ii) the existing and future car ownership levels. The Council will in some circumstances agree to a lower initial provision so long as the required provision can be installed at an agreed later date.

Old People’s Accommodation and Sheltered Housing

Whole Borough

1 space for 1 to 10 dwellings, 2 spaces for 11-20 dwellings and so on, plus parking for visitors (minimum 2 spaces) and for a warden. Where the development is likely to be occupied by active elderly people a higher standard may be required.

Accommodation for people with disabilities

Whole Borough

1 space per dwelling specifically designed for use by disabled persons. Where appropriate this standard will apply in addition to the standards required under new development.

Rehabilitation and infill development

Whole Borough

In addition to the interpretation of parking provision referred to in new development above, regard will be given to the physical opportunity to provide off-street car parking.

260


Non-Residential Parking Standards Use

Area

Requirement

Offices and Shops

Shoreditch Inset Area

1 car space per 1,115 sq.m. gross floorspace on-site maximum for operational needs only.

See Notes 1, 4, 5 and 6.

Offices and Shops

Rest of Borough

1 car space per 745 sq.m. of gross floorspace on-site maximum for operational needs only.


Industrial/ Warehousing

Within the Inner London Parking Area

1 car parking space per unit, plus 1 car parking space per 745 sq.m. gross floorspace.


Industrial/ Warehousing

Outside the Inner London Parking Area

1 car parking space per unit, plus 1 car parking space per 465 sq.m. gross floorspace.


Hotels

Whole Borough

1 car parking space per 15 bedrooms maximum plus 1 coach parking space per 100 bedrooms.

See Note 5.

Other Public Buildings

Whole Borough

Requirement for other public buildings, meeting places, and places of assembly, will depend on essential and operational needs, generated demand, local parking stress and the level of public transport provision.

required exclusively for operational purposes, on the premises.

NOTES 1.

2.

3.

Parking provided in excess of the standard stated may be provided at a standard not exceeding 1:465 sq.m. and shall be managed in a manner prescribed by the Council through a planning agreement. This management will be achieved either through control on hours of opening, charging levels (where applicable) or through the provision of this additional space by the Council as publicly available parking towards which commuted payments will be fixed from time-to-time by the Council.

4.

As 1 above EXCEPT change standard from 1:465 sq.m. to 1:185 sq.m. In applying these standards, the Council will consider the need to garage any vehicle fleet (lorries, cars or vans),


Additional parking for shoppers within Town Centres shall be provided. This should include an appropriate number of spaces for the exclusive use of people with disabilities. This should normally be 1 space in every 20 (with a minimum of 1 space), although it may not be necessary for all of these to be reserved for ‘exclusive’ use. For ‘out-of-centre’ shopping developments (including retail warehouses) a standard of one shopper parking space per 30 m2 gross floorspace will normally be required. Again this should include spaces for people with disabilities, as set out above.

5.

In addition one suitably designed space per 2,000 sq. metres floorspace should be 261

provided for use by people with physical disabilities. This standard may be waived in certain circumstances, for example, for firms employing less than 20 people. Parking bays for people with disabilities should be close to the main entrance door and be clearly marked. The parking bays should have a minimum width of 3200m. 6.

‘Offices’ is taken to include both B1 and A1 uses, ‘Industry’ is taken to include both B2 and B1 uses only when the development is clearly designed for industrial use (B2).

7.

The Regents Canal forms the boundary of the Inner London Parking Area in Hackney.

8.

Provision of Cycle parking at developments to be considered on an individual basis but regard will be had to the following guidelines which primarily relate to new development. They will also be applied in respect of existing development where this is appropriate and reasonable. Cycle Parking Provision 1 Sheffield stand plus 1 space per Y sq M gross floor area

Type of development

Y Schools Primary Secondary University Hospital Retail Housing (at ground floor level) Normal Student Sheltered Health Centres Offices Hotels Pubs/Restaurants Fast Food outlets Cinemas/Theatres Leisure Centres/Sports Factories/Warehouses Railway Stations Bus Stations

262

500 300 200 700 550 150 100 450 350 700

140 70 450 300 850 5 per train per hour (peak period) 2 per hundred passengers (peak flow)

Cycling parking provision should normally take the form of Shef f i e l d Stands, although wall-rings can be used; allocated lockers might be considered for s t a ff at work places and for cycling parking in residential developments. Long stay cycle parking should be covered. Parking Layout Parking layout should take into account the following: (i) individual parking spaces shall have minimum dimension 4.8m x 2.4m for 90˚ parking (side by side) and 6.1m x 2.4m for 0˚ parking (nose to tail). (ii) distance between rows of parked vehicles are as follows: Type

Distance

0˚ 3.0m 45˚ 3.6m 60˚ 4.2m 90˚ 6.0m (iii) car parks should not be ramped steeper than 1 in 10 (10%) and ramp width should be 2.5m for single lane and 4.8m for two lane traffic. (iv) the minimum headroom in decked car parks is 2.3m and open car parks can be protected for use by cars and light vans by a 2.3m metal height restriction barrier suitably signed. (v) Whenever possible off-street parking shall normally be provided to the rear of new residential developments in courts accessed by no more than two-footway crossings. (vi) The use of front gardens as parking areas in houses to be converted will not be acceptable because of its resulting detrimental impact on residential amenity and pedestrian and road safety. (vii) For industrial or warehouse developments sufficient space should also be allowed for the loading, unloading and parking of goods vehicles. (viii)Sewer connection with petrol interceptors will be required for car parks with 6 or more spaces. London Borough of Hackney Adopted UDP – June 1995

Parking Layout Arrangements (Standard 3)

Garages Garages should be a minimum size of 2.9 metres wide and 5.1 metres long. The crossover to an individual garage should be 2.4 metres. Standard 4: Mini-cab Offices

Mini-cab offices with no off-street parking must have radio control over all vehicles. Location, with regard to safety of the public at l a rge, of all offices will be carefully considered. Standard 5: Surgeries and Health Centres

Adequate parking provision must be made for doctors, staff and patients, within the site. Particular attention should be given to the access needs of the aged and people with disabilities, both pedestrian and those taken by vehicle.


263

Strategic Views Introduction Strategic Guidance requires local planning authorities to protect and enhance the designated ‘Strategic’ views and setting of St. P a u l ’s Cathedral. St. Paul’s Cathedral is defined as the drum, peristyle and dome. The strategic views affecting Hackney are those from Westminster Pier and King Henry’s Mound in Richmond Park for which Southern Hackney forms part of the ‘background’ to the view. Within the background consultation area shown on the Proposals Map the setting of the Cathedral in the skyline will be maintained by ensuring that the height, location and materials of proposed buildings do not adversely affect the Cathedral’s prominence. Careful consideration of building materials and tone can make a proposal more sympathetic to long distance views. Where existing buildings adversely affect the background because of their height or massing, the improvement of the views affected will be sought. Therefore, upon the redevelopment of such buildings, any new development will be expected to enhance and restore the setting of the Cathedral. New development which would not worsen the views only because it would be obscured by such buildings will not be permitted. The Council will consult the relevant local authorities and other appropriate bodies when an application for planning permission within the Background Consultation Area proposes a building being erected above the development plane. Where no agreement can be reached among planning authorities on development proposals, the proposal will be referred to the Secretary of State for the Environment to consider whether the application should be 264

called in for determination. The Corporation of London may also request the call in of applications made in other boroughs if they are likely to affect the views.

Westminster Pier to St. Paul’s Cathedral Borough: City of Westminster Location viewpoint: Victoria Embankment, Westminster Grid references: Viewing Point at intersection of E 530326.2 and N 179774.0 Height above datum: 6.8m (AOD) Description The view of the Cathedral is upward from the upper walkway of the Victoria Embankment and the sight line rises steeply because of the relative nearness of the cathedral. The view extends across the Thames through the South Bank and beyond the Cathedral towards Liverpool Street Station and the Bishopsgate Goods Yard Site. Background Consultation Area The background consultation area extends for 3.5km beyond the Cathedral towards Cambridge Heath Road. The relevant authorities will consult about all development proposals in the area which would exceed in height the development plane which radiates outwards from St. Paul’s Cathedral elevated points (at 50m AOD) grid references: E 532011.0 N 181197.0 E 532074.9 N 181116.2 It extends to a line drawn north-south connecting the following points (at 120m AOD): E 534684.9 N 183455.4 E 534851.3 N 183247.2


Authorities Affected by the Westminster Pier Strategic View

Authorities Affected by the King Henry’s Mound Strategic View

Foreground: City of Westminster, London Borough of Lambeth, London Borough of Southwark Background: London Borough of Hackney, London Borough of Tower Hamlets Both: Corporation of London.

Foreground: London Borough of Richmond Upon Thames London Borough of Wandsworth London Borough of Hammersmith and Fulham Royal Borough of Kensington and Chelsea City of Westminster London Borough of Lambeth London Borough of Southwark Background: London Borough of Hackney London Borough of Tower Hamlets Both: Corporation of London.

King Henry VIII’s Mound, Richmond Park to St. Paul’s Cathedral Borough: Richmond Upon Thames Location viewpoint: Grid references: Viewing Point at intersection of E 518603.5 and N 173149.1 Height above datum: 57.5m (AOD). Description The view of the Cathedral is nearly horizontal, north-eastward from the Mound through a ride which crosses the Sidmouth Plantation. The view cone extends beyond the Cathedral towards Liverpool Street Station and the Bishopsgate Goods Yard Site. Background Consultation Area The background consultation area extends 3.5km beyond the Cathedral towards Cambridge Heath Road. The relevant authorities will consult about all development proposals in the area which would exceed in height the development plane which radiates outwards from St. Paul’s Cathedral elevated points (at 50m AOD) grid references: E 532016.4 N 181206.2 E 532092.4 N 181078.2 It extends to a line drawn north-south connecting the following points (at 50m AOD): E 535016 N 183008.5 E 535109.7 N 182851.8


265

266


Schedule of Proposals The Schedule of Proposals identifies sites suitable for development, areas where particular Plan policies apply, areas affected by the safeguarding of new public transport routes, and a hierarchy of roads. The sites identified for development in the schedule are those which the Council considers could be most beneficially developed or redeveloped during the Plan period (over the next 5-10 years). The Proposals Schedule indicates the Council’s preferred form of development. The Council has reached its conclusions after considering the character, size and location of the site, the nature of surrounding land uses, its accessibility and how best its development can contribute to the future of Hackney and the achievement of the objectives of the UDP. The existence of a proposal for a site does not however preclude alternative schemes which are satisfactory in planning terms, but gives a firm indication as to to what form of development might be acceptable on the site. The schedule does not attempt to identify all sites where development is likely or to phase development. Small sites are excluded because they are less likely to have a significant effect on surrounding land uses. Development of other sites will arise as they become available over the Plan period; some sites included as proposals will remain undeveloped. All proposed developments will continue to require planning permission and will be assessed against all of the policies and standards of the UDP. The proposals indicated with an asterisk(*) in this schedule are located in the vicinity of notifiable installations. Whilst these are subject to stringent controls under existing Health and Safety legislation, the Council will control development in these areas in the interests of public safety, following consultation with the Health and Safety Executive. Proposals are ordered on a topic by topic basis like the policy chapters of the Plan.


267

268


Map Ref.

Ward

Address

Description of Site

Notes on Proposal

Environmental Quality For justification see chapters 2 and 8 Conservation Areas 1.

New River/ Brownswood

Stoke Newington Reservoirs, Filter Beds and New River

2.

North Defoe

Clissold Park

3.

North Defoe South Defoe Northwold

Stoke Newington Church Street

4.

Springfield

Clapton Common

5.

Lea Bridge and Eastdown

Clapton Pond

6.

Chatham

Clapton Square

7.

Chatham

Extension to Clapton Square Conservation Area

8.

Victoria and Wick

Victoria Park

9.

Victoria

Fremont and Warneford Street

10.

Dalston and Queensbridge

Queensbridge Rd

11.

De Beauvoir

De Beauvoir

12.

Haggerston

Albion Square

14.

Moorfields and De Beauvoir

Hoxton Street


Proposals 1-14 are areas of architectural or historic interest, the character or appearance of which it is desirable to preserve or enhance. Special controls apply to demolition/part demolition of buildings and works to trees. See also proposals 168, 169, 170 and 171.

Victoria Park now lies entirely within L.B. To w e r Hamlets

269

Map Ref.

Ward

Address

Description of Site

Notes on Proposal

Proposals 15-23 are to be designated as conservation areas following detailed investigation as staff resources permit during the life of the plan.

Proposed Conservation Areas 15.

Wenlock De Beauvoir Haggerston Queensbridge Victoria.

Regents Canal and Wenlock Basin

Canal and immediate environs running eastwest through the borough, and some related buildings

16.

Queensbridge

Broadway Market

Broadway Market including Western environs: Dericote Street Croston Street and part of Lansdowne Drive

17.

De Beauvoir

Extensions to De Beauvoir Conservation Area

Streets surrounding existing Conservation Area to the north, S.E. and S.W.

18.

Chatham

Extensions to Clapton Square Conservation Area.

19.

North Defoe South Defoe

Extensions to Stoke Newington Conservation Area.

20.

Westdown Dalston

Dalston Lane (West)

21.

Westdown

St. Marks

22.

Moorfields Haggerston Queensbridge Dalston De Beauvoir

Kingsland Road

23.

Queensbridge

London Fields

Note: These proposals are not shown on the Proposals Map because accurate boundaries cannot be established until they are investigated in detail.

270


Map Ref.

Ward

Address

Description of Site

Notes on Proposal

Strategic Views 24.

Moorfields Haggerston

View from Westminster Pier of St. Paul’s Cathedral

Background consultation area

25.


View from King Henry VIII’s Mound, Richmond Park of St. Paul’s Cathedral

Background consultation area

The background consultation area extends for 3.5km beyond St. Pauls towards Cambridge Heath Road. The London Borough of Hackney will consult with other relevant authorities about development proposals in the consultation areas which could affect these views. Further standards and information about strategic views can be found in the planning standards chapter.

London Squares 26.

Springfield

Clapton Common (in front of nos. 37-67).

Grass enclosure

27.

Springfield

Clapton Common (in front of nos 56-94)

Grass enclosure

28.

Northfield

Stamford Hill Strips

Grass enclosure

29.

South Defoe

Stoke Newington Church Triangular area Street (in front of nos 207-223)

30.

Clissold

Albion Road (at junction Triangular garden with Clissold Crescent) enclosure.

31.

Rectory and Westdown

Shacklewell Lane (at Triangular enclosure junctions with St. Mark’s and green Rise and Cecilia Road)

32.

Dalston

Fasset Square

Central garden enclosure

33.

Chatham

Clapton Square


34.

Wick

Cassland Crescent in front of 11-39 Cassland Road)

Garden enclosure


Proposals 26-41 are squares, gardens or enclosures protected by the London Squares Preservation Act, 1931 which limits their use and aims to preserve their historic character. The Council will not normally permit development which detracts from their character and amenity.

271

Map Ref.

Ward

Address

Description of Site

Notes on Proposal

London Squares continued 35.

Wick

Kenton Road (at junction Triangular enclosure with Valentine Road and Bentham Road)

36.

Victoria

St. Thomas’s Square


37.

Queensbridge

Mare Street triangle (at junction with Westgate Street)

Triangular enclosure

38.

Haggerston

Goldsmiths Square (at rear of Teale Street buildings)

Recreation ground

39.

Haggerston

Albion Square


40.

Haggerston

Stonebridge Common (at Triangular enclosure junction of Haggerston Road and Mayfield Road)

41.

De Beauvoir

De Beauvoir Square


See also Proposals 172-174.

Areas of Special Landscape Character 42.

Wenlock De Beauvoir Haggerston Queensbridge and Victoria

Regents Canal and Kingsland Basin

Canal and towpath

43.

Springfield Lea Bridge Kings Park Wick

Lee Valley Regional Park Open space and (excluding Morris and leisure area Weeks Fields and land in the Hackney Wick Defined Employment area) and Mabley Green

Proposals 42 and 43 are areas which, because of their special waterside and landscape character the Council will seek to preserve and enhance

See also proposal 175.

272


Map Ref.

Ward

Address

Description of Site

Notes on Proposal

East and West Reservoirs, Lordship Road and Green Lanes

Thames Water waterworks complex and surrounding land

The Council will request the owners of the site to agree to a substantial part of the site being designated as a statutory Local Nature Reserve, within the ownership and control of such owners, subject to appropriate management agreements which take account of the owner’s operational requirements.

Local Nature Reserve 44.

New River

See proposals 331 and 332.

Areas at Risk from Flooding 45.

Land adjoining the River Lee

Areas at risk from flooding as defined by the National Rivers Authority.

Note: This proposal is not shown on the Proposals Map, but on a smaller map at the end of the Environmental Quality Chapter.

Areas of Archaeological Priority 46.

Moorfields

Shoreditch

47.

Moorfields De Beauvoir Wenlock

Hoxton

48.

Wenlock

Wenlock Barn

49.

Haggerston

Haggerston Manor House and Village

50.

De Beauvoir

Bammes House/Hoxton Manor House

51.

Dalston Chatham Queensbridge Victoria

Merestet/West Street Triangle


Proposals 46-62 are Areas of Archaeological Priority where assessment and planning for the archaeological implications of development will be required. (See policy EQ29).

273

Map Ref.

Ward

Address

Description of Site

Notes on Proposal

Areas of Archaeological Priority continued 52.

Chatham Victoria Dalston Queensbridge

Hackney

53.

Westdown Dalston

Dalston Lane Manor House and Village

54.

Chatham Homerton Wick

Homerton

55.

Chatham Homerton

Lower Clapton

56.

Eastdown Lea Bridge Chatham

Clapton

57.

Rectory Westdown

Shacklewell

58.

Rectory

Bayston Road/ Tyssen Road

59.

North Defoe South Defoe Northwold

Stoke Newington

60.

Springfield Northfield

Stamford Hill

61.

Northwold

Upper Clapton/ Stoke Newington

62.

Wick Kings Park Lea Bridge Springfield Homerton

Lea Valley

274


Map Ref.

Ward

Address

Description of Site

Notes on Proposal

Housing For justification see chapter 3. New Development 63.

Lea Bridge

Former Salvation Army Congress Hall, Linscott Road

Listed facade/vacant site

Suitable for redevelopment for housing incorporating the listed building facade as a major design feature.

64.

Victoria

Rear of 47-53 Balcorne Street

Vacant

Planning permission granted in 1994 for the erection of 4 dwellings.

65.

Victoria

2-10 Mare Street

Vacant Site

Planning permission granted in 1993 for office development.

66.

Wick

Former Hackney Wick Goods Yard (Eastside) Eastway

Vacant Site

Affected by Channel Tunnel Rail Link, Area of Surface Interest.

67.

Wick

Hackney Hospital Homerton High Street

Partly vacant hospital

Planning permission granted in 1993 and 1994 for the provision of frail elderly and psychiatric units. Remainder of site suitable for housing development, community/health use.

68.

New River

Site of 6-16 Fairholt Road

Vacant

Suitable for housing development.

69.

De Beauvoir

Former playground, Ivy Street

Derelict playground

Planning permission granted in 1992 for 12 units.

70.

Chatham

Sites of 2-16 Link Street and 12-26 Homerton High Street

Vacant and derelict land, factory premises advertisement hoarding site and public footpath

Permission granted in 1993 for erection of 20 units with improved public footpath.

71.

Kings Park Homerton

Clapton Park, Nye Bevan and Millfields Estates

LB Hackney Housing Estates

Major estate redevelopment and refurbishment. Planning permission granted in 1993 (tower blocks site) for the erection of 184 units and 16 frail elderly bed spaces. - A Comprehensive Estates Initiative.


275

Map Ref.

Ward

Address

Description of Site

Notes on Proposal

New Development continued 72.

Wick

Trowbridge Estate

LB Hackney Housing Estate

Major estate redevelopment and refurbishment. - A Comprehensive Estates Initiative.

73.

Victoria

New Kingshold Estate


A Comprehensive Estate Initiative

74.

Eastdown

Nightingale Estate


A Comprehensive Estate Initiative

75.

Queensbridge Dalston

Holly Street Estate


Major estate redevelopment and refurbishment. - A Comprehensive Estates Initiative.

76.

Eastdown

113-121 Clarence Road

Garages/Workshops

Planning permission granted in 1990 for workshops and 12 residential units

78.

Rectory

108-122 Shacklewell Lane

Planning permission granted for housing development

81.

Westdown

54-62 Boleyn Road and 11a, 11b Gillett Street


82.

De Beauvoir

Gopsall Street Playground Site


83.

North Defoe

Land adjoining Lordship Grove


84.

Brownswood

Stoke Newington Filter Beds, Green Lanes

Suitable for housing development. (See also proposal 338).

86.

New River

New River Lodge, Woodberry Down

Site suitable for housing development. Planning permission granted in 1993 for the erection of 29 units.

87.

Victoria

Former Balcorne Street Sub Station site/Skip site

Suitable for housing development

276


Map Ref.

Ward

Address

Description of Site

Notes on Proposal


Rectory

26-36 Arcola Street


89.

Clissold

151-165 Albion Road, Church Walk

Suitable for housing development. Planning permission granted in 1993 for the erection of 14 units and 16 frail elderly bed spaces.

90.

Victoria

Well Street Bus Garage

Site suitable for housing development. Planning permission granted in 1993 for the erection of 19 units and 16 frail elderly bed spaces.

See also proposal 101, 102, 338, 345, 348, 349.


277

Map Ref.

Ward

Address

Description of Site

Notes on Proposal

Employment For justification see chapter 4. New Development 91.

Queensbridge

4-20 London Lane and 1-43 Ellingfort Road

Safeguarded for class B1, B2 development

92.

Queensbridge

Ash Grove Bus Garage

Suitable for B1, B2 and B8 development

93.

Queensbridge

7-25 (Consecutive) Mentmore Terrace


94.

Queensbridge

1-5 Gransden Avenue and 13-21 London Lane


95.

Homerton

Site of 46A-50 Brooksby’s Walk

Outline planning permission in 1987 for factory and industrial warehouse.

96.

Wick

Site of 24-36 Chapman Road


97.

Wick

Site bounded by Felstead Street Berkshire Road and Prince Edward Road

Safeguarded for class B1, B2 development. Currently laid out as temporary car park

98.

Wenlock

Site of Bleinheim Wharf, Eagle Wharf Road


99.

Wenlock

Site on south side of Eagle Wharf Road

Suitable for B1 office use

100.

Dalston

199-205 Richmond Road


101.

Eastdown

137-143 Lower Clapton Road

Restoration of the Listed Building and redevelopment of the vacant site to provide A2 or B1 office and residential uses.

278


Map Ref.

Ward

Address

Description of Site

Notes on Proposal


Wenlock

Site bounded by New North Road, Poole Street, Imber Street and Regents Canal.

Suitable for mixed development for business class B1 and residential.

103.*

Kings Park

Former CEGB Power Station site, Millfields Road

Safeguarded for class B1, B2 development. Canalside strip may also be suitable for residential moorings.

104.

Chatham

Site adjoining 280 Mare Street

Suitable for mixed development for A1, A2, A3 use on the ground floor with B1 use and/or community use, and/or residential use on upper floors.

105.

Chatham

280 Mare Street

Suitable for mixed development for A1, A2, A3 use on the ground floor with B1 use and/or community use, and/or residential use on upper floors.

106.

Chatham

147-161 Morning Lane

Suitable for B1/B2 development.

107.

Queensbridge

Site of 348-360 Kingsland Road

Safeguarded for class B1 development

108.

Wick

Former Lesneys factory, Lee Conservancy Road (between Homerton Road and Eastway)

Planning permission granted in 1995 for erection of a two storey storage/distribution building and a two storey business building

109.

Chatham

Site of 92-102 Digby Road


110.

Queensbridge

1 Mentmore Terrace and adjoining land

Safeguarded for class B1, B2 development.


279

Map Ref.

Ward

Address

Description of Site

Notes on Proposal


Wick

Hackney Stadium and adjacent land in Waterden Road and Eastway

The Lee Valley Regional Park Plan includes a proposal for intensive leisure use and this proposal is reflected here in order to comply with the Lee Valley Regional Park Act 1966. The Council supports continued intensive leisure use of the Hackney Stadium in recognition of its important role in the Regional Park. Proposals for B1, B2 and B8 uses would be viewed in that light.

112.

Northwold

Site of Willow Cottages rear of 16-36B Stamford Hill

Vacant

Suitable for B1 office or community use

113.

Rectory

Millers Avenue/ 9-13 Arcola Street

Vacant

Suitable for B1 use.

114.

Dalston

271-275 Mare Street

Suitable for mixed development including Class A1, A2, or A3, B1 or community use with residential accommodation on the upper floors. (See also proposal 178).

115.

Queensbridge

Site of 23-33 London Lane

Suitable for B1, B2, B8 development.

116.

Dalston Chatham

279-287 Mare Street and land in Hackney Grove

Council offices, depot and other civic uses and vacant offices.

Refurbishment and/or redevelopment to provide new and improved civic and related facilities, office accommodation and/or other town centre uses (e.g. classes A1-A3 and D1-D2), and open space.

See also Proposals 144, 145, 146, 354.

280


Map Ref.

Ward

Address

Description of Site

Notes on Proposal

Defined Employment Areas 117.

Springfield

Timberwharf Road

118.

Northwold

Belfast Road

119.

Lea Bridge

Theydon Road

120.

Chatham

Morning Lane

121.

Clissold

Carysfort Road

122.

Wick

Lee Conservancy Road

123.

Wick

Waterden Road, Hackney Wick

124.

Chatham

Homerton High Street

125.

Queensbridge Victoria Dalston

Mare Street

126.

Queensbridge

Ash Grove

127.

De Beauvoir Queensbridge Haggerston

Kingsland Basin

128.

Wenlock

Eagle Wharf Road


Retail development of a major food store may be permitted on the northern part of the DEA fronting Eastway, provided that it can be demonstrated that there are significant employment benefits when weighed against existing employment and likely losses by displacement. See also Policy E5.

Site bounded by Poole Street, Imber Street, Regents Canal and New North Road excluded from the DEA.

281

Map Ref.

Ward

Address

Description of Site

Notes on Proposal

South Shoreditch Inset Area For justification see chapters 2 to 8. New Development 129.

Moorfields

Site of 2-16 Phipp Street

Safeguarded for class B1, and/or class B2 development

130.

Moorfields

Site of 5-13 (consec.) Holywell Lane and former transport repair depot, King John Court

Safeguarded for class B1, B2 development. (But also see proposal 265).

131.

Wenlock

Site bounded by Nile Street, Vestry Street, Provost Street, City Road, Westland Place.


132.

Wenlock

Site south of Murray Grove and east of Shepherdess Walk.


133.

Wenlock

Site bounded by Clere Street, Tabernacle Street, Leonard Street, Paul Street and Clere Place


134.

Wenlock

Site of former St. Matthews Hospital, Shepherdess Walk

Suitable for Class B1 development

136.

Moorfields

276-286 Old Street 84-90 Great Eastern Street and 1-5 Rivington Street

Suitable for mixed development including class B1, A1, A2, A3, Leisure development.

137.

Moorfields

Site bounded by Boot Street, Old Street, Coronet Street and Pitfield Street (excluding 8-10 Pitfield Street).

Suitable for mixed development including B1, A1, A2, A3, leisure facilities, hotel uses or nonfamily residential accommodation on upper floors.

138.

Moorfields

Former Bishopsgate Goods Yard (Western part)

Suitable for major office development including provision for extension of East London Line across site (see also Transport proposals 265, and 268).

282


Map Ref.

Ward

Address

Description of Site

Notes on Proposal


Moorfields

Lane bounded by Worship Street, Appold Street, Sun Street and Clifton Street

Suitable for office development

140.

Moorfields

Land bounded by Worship Street, Curtain Road, Hearn Street, Plough Yard (west), the former railway viaduct up to Great Eastern Street, Bowl Court and Norton Folgate, including the airspace over the existing railway between Worship Street and Norton Folgate and Railway viaduct.

Safeguarded for class B1, B2 development.

141.

Moorfields

167 Commercial Street and 21-32 Shoreditch High Street

Suitable for major office development

142.

Moorfields

Land bounded by Great Eastern Street, Ravey Street and Leonard Street

Suitable for refurbishment and redevelopment for class B1 and B2 development.

143.

Moorfields

2-4 Hoxton Square/ 33 Coronet Street

Suitable for mixed development including Class B1, B2 and leisure uses. Planning permission granted in 1994 for the erection of a part 6, part 4 storey building to provide a cinema, gallery, cafe/bar, offices and workshops.


283

Map Ref.

Ward

Address

Description of Site

Notes on Proposal

Defined Employment Areas 144.

Moorfields/ Wenlock

South Shoreditch

145.

Wenlock

Wenlock Basin

146.

Moorfields

Hackney Road/ Kingsland Road

Properties 17-49 Pitfield Street excluded from the DEA.

Road Development 147.

Moorfields

Coronet Street (South side) between Pitfield Street and Hoxton Market

Vacant land

Road widening

148.

Moorfields

Old Street (North Side) between Pitfield Street and Coronet Street including 287-291 Old Street.

Vacant site and industrial buildings

Road widening for bus lane (may be carried out as part of proposal 137).

Holywell Lane (East of new railway viaduct)

Industrial premises

Road safeguarding line for improved right turn into Shoreditch High Street.

Proposals 150-162 are roads which provide access to the primary roads, access to main shopping areas for short and medium distance traffic and provide main bus routes.

Road Safeguarding 149.

Moorfields

Road Network – Secondary Roads 150.

Moorfields

Old Street

Public highway

151.

Moorfields

Kingsland Road

Public highway

152.

Moorfields

Shoreditch High Street

Public highway

153.

Moorfields

Norton Folgate

Public highway

284


Map Ref.

Ward

Address

Description of Site

Notes on Proposal

Road Network – Secondary Roads continued 154.

Moorfields

Bethnal Green Road

Public highway

155.

Moorfields

Commercial Street

Public highway

156.

Moorfields

Great Eastern Street

Public highway

157.

Moorfields

Curtain Road (between Great Eastern Street and Old Street)

Public highway

158.

Moorfields, Wenlock

City Road

Public highway

159.

Moorfields, Wenlock

Provost Street (between City Road and Vestry Street)

Public highway

160.

Moorfields, Wenlock

Vestry Street

Public highway

161.

Moorfields

East Road

Public highway

162.

Moorfields

Hackney Road

Public highway

Note: These Proposals are not numbered on the South Shoreditch Inset Area of the Proposals Map

Local Distributor Roads 163.

Moorfields

Pitfield Street

Public highway

164.

Moorfields

Calvert Avenue

Public highway

165.

Wenlock

Shepherdess Walk

Public highway

166.

Moorfields

Murray Grove

Public highway

Proposals 163-166 are roads which provide the function of distributing traffic to areas of the borough not served by secondary roads.

Note: These Proposals are not numbered on the Proposals Map

Major New Transport Links – East London Line Extension See Proposals 265, and 268. London Borough of Hackney Adopted UDP – June 1995

285

Map Ref.

Ward

Address

Description of Site

Notes on Proposal

Canal basin

Protection of open water area as Local Nature Reserve

Pedestrian and Cycle Facilities See proposal 282.


Wenlock

Wenlock Basin, rear of Wharf Road and Wenlock Road

Conservation Areas 168.

Moorfields

Sun Street

169.

Wenlock

Underwood Street

170.

Moorfields Wenlock

South Shoreditch

171.

Moorfields

Shoreditch High Street

Proposals 168-171 are areas of special architectural or historic interest, the character or appearance of which it is desirable to preserve or enhance. Special controls apply to demolition and part demolition of buildings and works to trees.

See also proposal 15.

London Squares 172.

Moorfields

Hoxton Square

Central Garden Enclosure

173.

Moorfields

Charles Square

Central Garden Enclosure

286

Proposals 172-174 are squares, gardens or enclosures protected by the London Squares Preservation Act, 1931 which limits their use and aims to preserve their historic character. The Council will not normally permit development which detracts from their character and amenity.


Map Ref.

Ward

Address

Description of Site

Windsor Terrace (at junction with City Road)

Enclosure

Notes on Proposal

London Squares continued 174.

Wenlock

Area of Special Landscape Character 175.

Wenlock


Canal and towpath

Area which, because of its special waterside landscape character, the Council will seek to preserve and enhance.

Canal and towpath

Area which because of its ecological importance and potential educational opportunities, the Council will seek to protect and enhance.

Area of Nature Conservation Importance 176.

Wenlock


(See also proposal 167).


287

Map Ref.

Ward

Address

Description of Site

Notes on Proposal

Transport For justification see chapter 6. Road Development 177.

Kings Park and Wick

Eastway, Homerton Road Open space and public and Waterden Road, highway. including parts of Weeks and Morris Fields.

Hackney to M11 link road. Approved by the Secretary of State for Transport. Areas of Weeks and Morris Fields to be heavily landscaped. The Council may seek redevelopment of any residual land in Morris Field which falls within the Waterden Road/Hackney Wick Defined Employment Area (Proposal 123) for class B1, B2, B8, or retail development.

178.

Dalston

Junction of Richmond Road and Mare Street

Public highway and forecourt of petrol filling station on land adjacent to 271-275 Mare Street

Junction improvement to provide separate left turn facility. The Council will ensure through detailed design that this proposal will create no overall increase in highway capacity in the area.

179.

Chatham

Junction of Mare Street and Morning Lane

Council offices at 302-304 Mare Street

Junction improvement to enable right turn facility from Morning Lane into Mare Street. The Council will ensure through detailed design that this proposal will create no overall increase in highway capacity in the area.

See Proposals 147, 148, 149, 358-360.

288


Map Ref.

Ward

Address

Description of Site

Notes on Proposal

Road Safeguarding 180.

Haggerston

Laburnum Street (entire length, both sides)

Road and adjoining buildings

Road safeguarding to improve pedestrian facilities and reduce conflicts with vehicles.

181.

Chatham

Urswick Road

Homerton House School playground area

Road safeguarding to improve safety on bend

182.

Wick

Homerton High Street (South side) between Kenworthy Road and Crozier Terrace

Part hospital buildings, public house and commercial/residential buildings

Road safeguarding for widening to improve safety and facilities for pedestrians and bus stopping arrangements

183.

Wenlock

Mintern Street (North side east end)

Part of Shoreditch Park and public highway

Road widening line to improve junction safety

Public highway

Road which provides for longer journeys, in particular for those by goods vehicles, and links London to the national road system

Public highway

Proposal 185-221 are roads which provide links to the primary roads, access to main shopping areas for short and medium distance traffic and provide main bus routes

See Proposal 149.

Road Network - Primary Road 184.

Wick

A102(M)

Road Network - Secondary Roads 185.

Brownswood

Blackstock Road

186.

Brownswood New River

Seven Sisters Road

187.

Brownswood New River North Defoe Clissold

Green Lanes


289

Map Ref.

Ward

Address

Description of Site

Notes on Proposal

Road Network - Secondary Roads continued 188.

Clissold Rectory South Defoe

Stoke Newington Road

189.

South Defoe Rectory Northwold North Defoe

Stoke Newington High Street

190.

North Defoe Northwold Springfield Northfield

Stamford Hill

191.

New River Northfield

Amhurst Park

192.

Northfield Springfield

Clapton Common

193.

Springfield Northwold Eastdown Lea Bridge

Upper Clapton Road

194.

Northwold Rectory

Rectory Road and part of Northwold Road (between Rectory Road and Stoke Newington High Street)

195.

Rectory

Manse Road and part of Evering Road (between Manse Road and Stoke Newington Road)

196.

Rectory Eastdown

Downs Road (between Rectory Road and Clapton Way and between Lower Clapton Road and Cricketfield Road)

197.

Eastdown

Clapton Way

198.

Eastdown

Kenninghall Road (between Lea Bridge Roundabout and Clapton Way)

290


Map Ref.

Ward

Address

Description of Site

Notes on Proposal


Lea Bridge

Lea Bridge Road

200.

Dalston

Amhurst Road (between Mare Street and Dalston Lane)

201.

Dalston De Beauvoir Queensbridge Haggerston Moorfields

Kingsland Road

202.

De Beauvoir

Balls Pond Road

203.

Wenlock

New North Road (Regents Canal to Murray Grove/East Road)

204.

Wenlock Moorfields

East Road

205.


Hackney Road

206.

Haggerston Queensbridge Dalston

Queensbridge Road

207.

Dalston Eastdown Westdown

Dalston Lane

208.

Dalston Chatham Victoria Queensbridge

Mare Street (between Amhurst Road and Cambridge Heath Road)

209.

Victoria Wick

Victoria Park Road

210.

Victoria

Well Street (between Mare Street and Cassland Road)


291

Map Ref.

Ward

Address

Description of Site

Notes on Proposal

Public highway

Proposals 222-263 are roads which serve the function of distributing traffic to areas of the Borough not served by secondary roads


Victoria

Lauriston Road (between Victoria Park Road and adjoining Borough)

212.

Wick

Cassland Road

213.

Wick

Wick Road (between Kenworthy Road and Eastway)

214.

Wick

Kenworthy Road

215.

Wick

Eastway

216.

Wick

Chapman Road

217.

Wick Homerton Chatham

Homerton High Street

218.

Chatham Eastdown Lea Bridge

Lower Clapton Road

219.

Chatham

Urswick Road

220.

Eastdown

Pembury Road

221.

Eastdown

Cricketfield Road

See also Proposals 150-162 and 361-365. Note: These Proposals are not numbered on the Proposals Map

Road Network - Local Distributor Roads 222.

Clissold

Boleyn Road (between Matthias Road and Crossway)

223.

Lea Bridge Homerton

Chatsworth Road

292


Map Ref.

Ward

Address

Description of Site

Notes on Proposal

Road Network - Local Distributor Roads continued 224.

Homerton Chatham

Brooksby’s Walk

225.

Brownswood

Brownswood Road

226.

New River North Defoe

Lordship Park

227.


Lordship Road and part of Woodberry Grove (between Seven Sisters Road and Lordship Road)

228.


Manor Road

229.

North Defoe South Defoe Clissold


230.

South Defoe Clissold

Albion Road

231.

Clissold Westdown

Crossway

232.

Northwold

Northwold Road (between Rectory Road and Upper Clapton Road)

233.

Rectory Westdown

Shacklewell Lane

234.

Rectory Westdown Eastdown

Amhurst Road (between Dalston Lane and Rectory Road)

235.

Rectory Westdown

Cecilia Road

236.

De Beauvoir

Englefield Road

237.

De Beauvoir

Southgate Road


293

Map Ref.

Ward

Address

Description of Site

Notes on Proposal

Road Network - Local Distributor Roads continued 238.

De Beauvoir

Downham Road

239.

De Beauvoir

De Beauvoir Road (between Englefield Road and Whitmore Road)

240.

De Beauvoir

Whitmore Road

241.

Wenlock Moorfields

New North Road (between Pitfield Street and East Road)

242.

De Beauvoir Moorfields Wenlock

Pitfield Street

243.

Wenlock

Eagle Wharf Road

244.

Wenlock

Shepherdess Walk (between Eagle Wharf Road and City Road)

245.

Wenlock

Murray Grove

246.

Haggerston Moorfields Queensbridge

Whiston Road and Andrews Road and part of Pritchards Road (between Whiston Road and Andrews Road)

247.

Dalston Queensbridge

Richmond Road

248.

Dalston

Graham Road

249.

Victoria Chatham Wick

Well Street (between Cassland Road and Morning Lane)

250.

Victoria Wick

Lauriston Road (between Well Street and Victoria Park Road)

251.

Victoria Wick

Church Crescent

294


Map Ref.

Ward

Address

252.

Wick

Kenton Road

253.

Wick

Gascoyne Road

254.

Chatham Wick

Wick Road (between Morning Lane and Kenworthy Road)

255.

Chatham

Morning Lane

256.

Chatham

Valette Street

257.

Chatham

Paragon Road (between Valette Street and Mare Street)

258.

Chatham

Ponsford Street

259.

Wick

Waterden Road

260.

Wick Homerton Kings Park

Marsh Hill and Homerton Road

261.

Brownswood

Mountgrove Road

262.

Brownswood

Riversdale Road (between Green Lanes and Mountgrove Road)

263.

Clissold

Matthias Road

Description of Site

Notes on Proposal

Open space adjoining local business

Temporary car parking for local businesses

See also Proposals 163-166. Note: These Proposals are not numbered on the Proposals Map

Road Network - Car Park 264.

Wenlock

Murray Grove (rear of Underwood Street)



295

Map Ref.

Ward

Address

Description of Site

Notes on Proposal

Major New Public Transport Links Several proposed railway/Underground proposals affect the Borough. Major new public transport routes have route safeguarding implications. Potential rail routes need to be protected from development which could prejudice their construction. In the case of the Chelsea-Hackney Line the Secretary of State for Transport has issued directions under Articles 14(1), 18(3) and 30 of the Town and Country Planning General Development Order 1988 to safeguard the route. For the Channel Tunnel Rail Link the Secretary of State for Transport has issued directions under Articles 10(3), 14(1) and 27 of the Town and Country Planning (General Development Procedure) Order 1995 to safeguard the route. In the case of the East London Line Extension a route has been identified using the former railway land from Dalston to Holywell Lane and then across Shoreditch High Street and the Bishopsgate Goods Yard to connect with the existing East London Line. This route has not yet been safeguarded by the Secretary of State for Transport. The proposals map identifies land subject to consultation in respect of the Chelsea-Hackney Line and the Channel Tunnel Rail Link which has been taken from the Department of Transport’s safeguarding directions for the routes, issued November 1991 and December 1994 respectively. It also identifies the proposed route of the East London Line Extension. (The East-West CrossRail is not shown on the proposals map or in the proposals schedule as the safeguarded route lies south of the Borough boundary, in the City.) For further details and advice, potential developers are requested to contact the Council.

East London Line Extension 265.

Moorfields Haggerston Queensbridge Dalston Westdown

Former railway land from Dalson, including West Curve, to Great Eastern Street, 197-200 & 183-186 Shoreditch High Street, 59-67 Holywell Lane and former depot, King John Court. Then across Shoreditch High Street onto Bishopsgate Goods Yard

266.

Queensbridge

Lee Street

Existing railway viaduct

Proposed station for East London Line Extension

267.

Haggerston

Cremer Street

Existing railway viaduct


296

The Council will seek to protect the integrity of the land required for the East London Line Extension from Shoreditch (Bishopsgate) to Dalston Town Centre (see also Proposals 270 and 277)


Map Ref.

Ward

Address

Description of Site

Notes on Proposal

East London Line Extension continued 268.

Moorfields

Bishopsgate Goods Yard site

Disused railway land


269.

Westdown Dalston

Dalston Lane

Former BR station

Proposed station for East London Line Extension (see also Proposal 273)

See also Proposals 130 and 138, 351 and 352.

Chelsea-Hackney Line 270.

De Beauvoir Kings Park Westdown Dalston Chatham Homerton Wick

271.

Chatham

Digby Road, Sedgwick Street, Mackintosh Lane, Barnabus Road (south side of Homerton High Street)

Safeguarded for proposed station at Homerton (see also Proposal 275)

272.

Wick

Waterden Road

The Council seeks and would support the provision of a station in this location on the Chelsea-Hackney Line

273.

Westdown Dalston

Dalston Lane

Safeguarded for proposed station at Dalston Junction (see also Proposal 269)

274.

Dalston

Amhurst Road Land and buildings between Amhurst Road and North London Line

Safeguarded for proposed station at Hackney Central

275.

Homerton

HomertonGrove/ Brooksby’s Walk Public Open Space

The Council seeks and would support the provision of a station in this location on the Chelsea-Hackney Line. (Suggested alternative for Homerton Underground Station see Proposal 271)

See also Proposals 351 and 352.

Safeguarded route. Most development proposals subject to consultation with London Underground Limited (see also Proposals 265 and 277)

Channel Tunnel Rail Link 276.

Westdown Dalston Chatham Wick


Safeguarded corridor. Most development proposals subject to consultation with Union Railways Limited 297

Map Ref.

Ward

Address

Description of Site

Notes on Proposal

Former rail route 277.

Westdown

Former East Curve and land at Martel Place

Land protected for future possible railway use. (See also Proposals 265 and 270.)

Pedestrian and Cycle Facilities 278.

Chatham

Churchwell Path

Footpath

Combined cycle and pedestrian route

279.

Haggerston

Dunston Road between Stean Street and Clarissa Street

Public highway subject to temporary closure order

Canalside footpath and landscaped area associated with the Stonebridge Estate redevelopment

280.

Kings Park Wick

Path parallel to Lee Navigation from Lea Bridge Road, south to the Borough boundary

Canalside strip to be laid out as cycle/footpath/amenity area

281.

Queensbridge Chatham Wick Victoria

Lamb Lane to Temple Mills Road (via Well Street, Cassland Road, Valentine Road, Bentham Road, Bradstock Road, Wick Road, Barnabas Road, Hassett Road, Kenworthy Road, Mabley Street, Swinnerton Street, Red Path, and Eastway).

Extension of Maurice Hope cycle route

282.

Wenlock Moorfields De Beauvoir Clissold Westdown South Defoe North Defoe New River Northfield

South Shoreditch to Hillside Road (via Tabernacle Street, Pitfield Street, Fanshaw Street, Hoxton Street, Mundy Street, Hoxton Square, Rufus Street, Charlotte Road, Rivington Street, Garden Walk, Ravey Street, Leonard Street, Paul Street, Whitmore Road, De Beauvoir Road, Northchurch Terrace, Culford Road, Balls Pond Road, Kingsbury Road, Jude Street, Boleyn Road, Wordsworth Road, Nevill Road, Defoe Road, Bouverie Road, Heathland Road, St. Kilda’s Road, Bethune Road, Dunsmure Road, and East Bank).

Designated City-Stamford Hill cycle route

298


Map Ref.

Ward

Address

Description of Site

Notes on Proposal

Pedestrian and Cycle Facilities continued 283.

Dalston Chatham Lea Bridge Kings Park Homerton

Reading Lane to Mill Fields (via Mare Street, Lower Clapton Road, Clapton Square, Clapton Passage and Powerscroft Road)

Extension of Market Porters cycle route

284.

Westdown Eastdown Lea Bridge Kings Park

Boleyn Road to Hackney Marshes (via John Campbell Road, Sandringham Road, Cecilia Road, Downs Park Road, Clarence Road, Rowhill Road, Lower Clapton Road, and Millfields Road)

Dalston-Hackney Marshes cycle route

285.

New River Northfield Springfield

Woodberry Grove to Spring Hill (via Lordship Road, Fairholt Road, Dunsmure Road, Portland Avenue, Craven Walk, Clapton Common, and Overlea Road)

Finsbury Park-Springfield Park cycle route

286.

Springfield Lea Bridge

Big Hill to Lea Bridge Road along western bank of River Lee

Extension of River Lee cycle way

287.

Lea Bridge

Lea Bridge to Lea Bridge Road roundabout

Continuation of Lea Bridge cycle route.



299

Map Ref.

Ward

Address

Description of Site

Notes on Proposal

Retailing and Town Centres For justification see chapter 7. Shopping and Town Centre Development Sites 288.

Chatham

Chalgrove Road car park and adjoining land and buildings, London Regional Transport Bus Garage and forecourt and British Rail yard beneath and adjoining the railway viaduct

Car park, factory premises, vacant land, bus garage and forecourt, together with land under railway viaduct

May be suitable for large food supermarket and public car park together with offices and other shopping centre related activities, if bus garage not required for operational use

289.

Queensbridge

18-22 Broadway Market

Vacant site

Planning permission granted in 1993 for retail use with residential accommodation on upper floors

290.

Northfield

158 Clapton Common

Former Sainsbury’s site

Suitable for retail/commercial and/or community use appropriate to the Stamford Hill shopping centre

291.

Clissold

31-35 Stoke Newington Road

Coliseum cinema vacant/derelict site

Suitable for mixed development including retail and community uses

Town Centres and Main Shopping Areas 292.

Chatham Dalston Lea Bridge

Mare Street

293.

Rectory North Defoe South Defoe Northwold Northfield

Stoke Newington

Large shopping centres in Hackney. They have opportunities for new shopping development and also serve as focal points for more general commercial, leisure, community and art and cultural facilites for the Borough

See also Proposal 355.

300


Map Ref.

Ward

Address

Description of Site

Notes on Proposal

Local Shopping Centres 294.

Northfield Springfield

Stamford Hill

A concentration of shops and services which serve a local catchment area

295.

Brownswood

Finsbury Park

296.

North Defoe South Defoe


297.

Northwold Lea Bridge

Upper Clapton Road

298.

Eastdown

Lower Clapton Road

299.

Homerton

Chatsworth Road

300.

Chatham Wick

Well Street

301.

Victoria

Lauriston Road

302.

Queensbridge

Broadway Market

303.


Kingsland Road

304.

Moorfields De Beauvoir

Hoxton Street

305.

Homerton

Chatsworth Road (between Lockhurst Street and Clifden Road)

Public highway

Defined street market

306.

Moorfields De Beauvoir

Hoxton Street (between Hemsworth Street and Falkirk Street)

Public highway


307.

Queensbridge

Broadway Market (between Lansdowne Drive and Ada Street)

Public highway


308.

Chatham Wick

Well Street (between Morning Lane and Milbourne Street)

Public highway


Street Markets


301

Map Ref.

Ward

Address

Description of Site

Notes on Proposal

Kingsland Waste (between Forest Road and Middleton Road)

Public highway


Areas where the Council will not normally permit changes of use involving a loss of ground floor retail space

Street Markets continued 309.



Core Shopping Areas 310.

Chatham Dalston

331-419 & 350-422 Mare Street, and 1-19 & 2-18 Amhurst Road

Shopping and commercial premises

311.

North Defoe Northwold South Defoe Rectory

135-173 & 138-178 Stoke Newington High Street



302


Map Ref.

Ward

Address

Description of Site

Notes on Proposal

Open Spaces and Nature Conservation For justification see Chapter 2 and 8. Metropolitan Open Land and Green Chains 312.

New River

New River and East & West Stoke Newington Reservoirs

Thames Water waterworks and complex and surrounding land

313.


Lee Valley Regional Park Park, open space, (excluding Morris and canal and river Weeks Fields and land in Hackney Wick Defined Employment Area) and Mabley Green

314.

New River Brownswood

Stoke Newington Reservoirs to Stoke Newington Filter Beds to Finsbury Park

315.

New River North Defoe Northwold Springfield

Clissold Park along Aden Terrace to Petherton Road

316.

Haggerston Queensbridge Dalston Eastdown Lea Bridge Chatham

Regents Canal, to London Fields, to Hackney Downs, to Millfields

317.

Victoria Wick Queensbridge

Victoria Park, to Well Street Common, to London Fields

Proposals 312-313 are open land to be maintained in predominantly open use designated in the Greater London Development Plan as being of significance to Greater London as a whole. Green chains are large areas of open space of structural, recreational and nature conservation benefit to London. All MOL within Hackney is also designated as Green Chain. They form part of an extended network and provide long distance pathways for the public and wildlife in natural surroundings

Green Links


Green Chains and other green areas will be connected, where appropriate, by a network of green links to provide pathways for the public and wildlife. They will consist primarly of waymarked walks and cycle routes set, wherever possible, in a green environment. Detailed routes will be brought forward for implementation over the lifetime of the Plan as resources permit

303

Map Ref.

Ward

Address

Description of Site

Notes on Proposal

Green Links continued 318.

Wick

Hackney Cut Marshgate Bridge to Mabley Green, to Victoria Park

319.

Wenlock De Beauvoir Haggerston Queensbridge Victoria

Regents Canal towpath

Open Spaces and Parks 320.

Haggerston

Stub of Arbutus Street

Public highway

To be incorporated into Stonebridge Gardens open space

321.

Chatham

Land adjoining Brooksbank Close off Cresset Road

Open space, part vacant garages

Suitable for development as public open space

322.

Wenlock

Sites of 26-38 & 31-49 Gopsall Street and 31 Northport Street

Part vacant, part commercial premises in poor condition and part public highway

Mixed public open space, housing and employment uses

Areas of Nature Conservation Importance 323.

Wenlock De Beauvoir Haggerston Victoria

Regents Canal

Canal and towpath

Proposals 323-330 are areas which because of their ecological importance and potential educational opportunities the Council will seek to preseve and enhance

324.


Old River Lea, Hackney Cut and Middlesex Filter Beds

River, towpath and filter beds

Middlesex Filter Beds are managed as a Nature Reserve by the Lee Valley Regional Park Authority

325.

New River Northfield

Holmleigh Cutting (between Amhurst Park and Manor Road)

Railway Cutting (BR operational land)

326.

New River

New River (north of Newnton Close)

Thames Water water supply

304


Map Ref.

Ward

Address

Description of Site

Notes on Proposal

Areas of Nature Conservation Importance continued 327.

New River

Eade Road Rough

Grassland banks to New River

328.

North Defoe

Abney Park Cemetery

Cemetery

329.

New River

East and West Stoke Newington Reservoirs, Green Lanes and Lordship Road

Thames Water waterworks complex and surrounding land

330.

Springfield

Springfield Park

Designated as a Local Nature Reserve in 1993

See also Proposal 167, 176.


Springfield

Springfield Park

332.

North Defoe

Abney Park Cemetery


Lee Valley Regional Park 333.


Lee Valley Regional Park Park, open space, canal, river and Hackney Stadium

Regional park managed by L.V.R.P.A. for leisure and recreation. The area of the Park, as indicated on the proposals map, is affected by proposals contained in the Lee Valley Park Plan 1986 by virtue of Section 14(2) of the Lee Valley Regional Park Act 1966

334.

Springfield Lea Bridge Wick Kings Park

River Lea and Lee Navigation Towpath

The Lee Valley Regional Park Authority will continue to carry out improvements to the towpath


Towpath along canal/river

305

Map Ref.

Ward

Address

Description of Site

Notes on Proposal

Other Leisure Proposals 335.

Dalston

Former Hackney Downs Goods and Coal Depot, Graham Road

Vacant land adjacent to new British Rail track

Leisure or allotment use. Affected by Channel Tunnel Rail Link safeguarding, Area of Surface Interest

336.

De Beauvoir

Kingsland Basin, Hertford Road

Canal basin

Water-based community and recreation facilities and moorings

Stoke Newington Reservoirs, Filter Beds and the New River A complex site of major opportunity requiring development as a whole. The Council will resist piecemeal development. Any development must respect and comply with the varying contraints affecting different areas of the site as detailed below and on the Proposals Map. The Council accepts that development of the filter beds is necessary to enable leisure and nature conservation uses on the site as a whole, and to preseve and enhance the importance of the site as an open area, and its role as part of a wider Green Chain and Link system. 338.

306

New River Brownswood

Stoke Newington Reservoirs, Filter Beds and New River

Thames Water waterworks complex and surrounding land including listed buildings and structures

Suitable for development as a whole, to provide for nature conservation use of the East and West Reservoirs and Local Naure Reserve with associated and compatible leisure use of the West Reservoir, and residential and/or community use of the Filter Beds. The whole to form part of a wider Green Chain and Link system. When detailed proposals are prepared for the Green Link regard should be given to the operational requirements on the Reservoirs and the New River


Map Ref.

Ward

Address

Description of Site

Notes on Proposal

Community Services For justification see chapter 9. Education 339.

Homerton

Site to rear of 95-105 Vacant industrial site Durrington Road and 115 and residential Daubney Road premises

Additional play-space for Daubeney School

340.

Wenlock

Land adjoining Whitmore Primary School, Gopsall Street

Vacant site and public highway

Extended school play area and school car park, road closure order required

341.

Clissold

Site to the rear of 98 Albion Road adjoining Grasmere Primary School

Former part of rear garden of residential property.

Addtional playspace for Grasmere Primary School

Health Services 342.

Chatham

Ambulance station, St. John’s Hospital for Diseases of the Skin and part of old Eastern Hospital, Homerton Grove

Ambulance station and hospital buildings and vacant site

Second phase of the new Homerton Hospital North East Thames Regional Health Authority

344

Chatham

Land to the rear of 44-48 Clifden Road, 50, 56 and 74-82A Clifden Road and land to the rear of 3-7 Chatsworth Road

Mainly houses; some vacant and derelict

Planning permission in 1989 for Health Service purposes; including an Oncology laboratory and a Psychiatric day hospital by North East Thames Regional Health Authority

Vacant

Housing/community use as part of the partial redevelopment of the Trowbridge Estate

Other Sites for Community Use 345.

Wick

Site at junction of Felstead Street and Berkshire Road (north side)

346.

Clissold

Land south of New River Vacant grassed and School, Clissold Road treed open space (formerly part of school)

347.

Lea Bridge

Round Chapel, Lower Clapton Road


Suitable for community use either as an extension to school or as landscaped open space/community garden.

Grade II Listed Church Planning permission granted in 1994 for performing arts centre

307

Map Ref.

Ward

Address

Description of Site

Notes on Proposal

Vacant site

Suitable for redevelopment for a new Housing Directorate neighbourhood office/residential

Other Sites for Community Use continued 348.

Eastdown

19A Downs Road

349.

Wick

Site and buildings in Homer Road

308

Suitable for redevelopment for a new Housing Directorate neighbourhood office/residential


Map Ref.

Ward

Address

Description of Site

Notes on Proposal

Arts, Culture and Entertainment For justification see chapter 10. Hotel Development 350.

Brownswood


314-340, 348-356 & 370424 Seven Sisters Road and petrol filling station at junction of Seven Sisters Road and Wilberforce Road

Hotels, residential office and community premises, Public House and petrol filling station

Area where the Council will permit hotel use or development

309

Map Ref.

Ward

Address

Description of Site

Notes on Proposal

Dalston Inset Area For justification see chapters 2-8. Shopping and Town Centre Development Sites 351.

Dalston

Land at Dalston Junction Station, former Gaumont Cinema and 14 Dalston Lane

Disused railway land, commercial premises and car park

Town centre development site suitable for major office development, leisure facilities, community uses and car parking. This proposal is affected by railway safeguarding lines. (See Proposals 265, 269, 270, 273 and 277)

352.

Westdown

Land bounded by Kingsland High Street, Abbot Street and Dalston Lane

Retail, commercial and industrial premises and disused railway

Town centre development site suitable for retail development, community and office use. This proposal is affected by railway safeguarding lines (See Proposals 265, 270 and 277)

353.

De Beauvoir

8-14 Tottenham Road and 7-19 Bentley Road

Site occupied by prefabricated homes

Town centre development site suitable for mixed residential, B1 or community use

Defined Employment Area 354.

Westdown

Ramsgate Street

Town Centre and Main Shopping Area 355.

Westdown Dalston De Beauvoir

Dalston

Westdown

Ridley Road (between Kingsland High Street and St. Mark’s Rise)

The largest shopping centre in Hackney. It has the most opportunities for new shopping development. It serves as a focal point for general commercial, leisure, community and Arts and Cultural facilities in the Borough

Street Markets 356.

310

Public highway



Map Ref.

Ward

Address

Description of Site

Notes on Proposal

36-66 and 25-57 Kingsland High Street


Area where the Council will not normally permit changes of use involving loss of ground floor retail floor space

Core Shopping Area 357.

Westdown

Road Development 358.

Westdown

1 and 2 Bradbury Street and Gillett Street rear of 71-79 Kingsland High Street

Car park

Service road to link Bradbury Street with Gillett Street

359.

Dalston

Rear of 46-86A Dalston Lane

Vacant land

Rear service road to improve service arrangements to local firms and shops

360.

Westdown

64/66 Boleyn Road

Vacant land

Junction improvement and road widening to permit two way traffic to/from proposed car park (See Proposal 366)

See also Proposal 282

Secondary Roads 361.

Westdown Dalston

Dalston Lane

362.

Dalston

Queensbridge Road

363.

Westdown

Kingsland High Street

364.

Westdown De Beauvoir

Balls Pond Road

365.

De Beauvoir Dalston

Kingsland Road

Roads which provide links to the primary roads, access to main shopping areas for short and medium distance traffic and provide the main bus routes

Local Distributor Roads See Proposals 231 and 233 Note: These proposals are not numbered on the Dalston Inset Area of the Proposals Map.


311

Map Ref.

Ward

Address

Description of Site

Notes on Proposal

366.

Westdown

Land at Gillett Street

Car park

Public car park to serve Dalston Town centre

367.

De Beauvoir

Bentley Road car park

Car park

Public car park to serve Dalston Town centre

368.

Westdown

Dalston Cross Shopping Centre

Privately operated car park

Car park to serve new shopping development and Dalston Town centre

369.

Westdown

Ramsgate Street car park

Car park

Car park to serve businesses within Ramsgate Street Defined Employment Area

370.

Westdown

Land at Birkbeck Road (northern end)

Vehicle park

Parking for light commercial vehicles for local businesses

Public highway

Proposals 371-380 all involve the creation of pedestrian priority streets

Car Parks

Pedestrian and Cycle Facilities 371.

Westdown

Ridley Road (between Kingsland High Street and St. Mark’s Rise)

372.

Westdown

Part of Birkbeck Road

373.

Westdown

Bradbury Street (between Kingsland High Street and Boleyn Road)

374.

Westdown

Part of Boleyn Road at its junction with Kingsland High Street

375.

Westdown

Part of Kingsland Passage (adjoinining Kingsland High Street)

376.

Westdown

Winchester Place

377.

Westdown

Part of Stanborough Passage (adjoining Kingsland High Street)

378.

Westdown

Part of Abbot Street (between Kingsland High Street and Ashwin Street)

312


Map Ref.

Ward

Address

Description of Site

Notes on Proposal

Pedestrian and Cycle Facilities continued 379.

Westdown

Part of Bentley Road (adjoining Kingsland Road)

380.

Westdown

Gillett Street (between Gillett Place and Kingsland High Street)

See also Proposal 284

Major New Public Transport Links

East London Line Extension See also Proposals 265, 269 and 277

Chelsea-Hackney Line See also Proposals 270, 273 and 277

Channel Tunnel Rail Link See also Proposal 276


313

314


Glossary A c c e s s – way or means of entry into a building, site, or area of activity, e.g. housing. The term is also used in relation to improvements for the benefit of people with disabilities (accessible). Adoption – the process by which the local planning authority legally approves a Plan so that it supersedes any previous statutory plan. Advice on Strategic Planning Guidance for L o n d o n – produced by London Planning Advisory Committee in February 1994 to advise the Secretary of State and the London Boroughs in preparing their Unitary Development Plans. A ffordable Housing – housing which is available to people whose incomes are insufficient to enable them to afford adequate housing locally on the open market. This includes such schemes as housing association homes for rent, shared ownership, and joint venture housing. Amenity – amenities are those facilities which can make an environment more s a t i s f a c t o r y. In a domestic context basic amenities include a toilet, fixed bath or shower in bathroom. Amenity Space – those areas within the curtilage of a residential dwelling which are used exclusively by the residents for recreation, e.g. a garden or landscaped space. A rticle 4 Dire c t i o n – the 1988 General Development Order grants planning permission for a number of specific developments. The Council can, in certain instances, issue an Article 4 Direction which removes the right to such permitted development. Business Use (Class B1) – use for the purposes of offices, research and development or industry, providing that such a use can be London Borough of Hackney Adopted UDP – June 1995

carried out in a residential area without detriment to the amenity of that area. Capital Programme – a financial programme updated annually to provide capital assets, for example, housing schemes undertaken by Local Authoritiies and Housing Associations. Canal – The Regents or Grand Union Canal and the River Lee Navigation. Channel Tunnel Rail Link – a proposed highspeed rail link for international and domestic trains, from the second international passenger terminal at St Pancras, through twin tunnels beneath Hackney, along the North London Line corridor. Change of Use – a material change of land or buildings from one class of use to another constitutes development and so requires planning permission. See also ‘Use Classes’ order. Chelsea-Hackney Line – a proposed Tube line running from Wimbledon (Merton) to Epping (Epping) with proposed stations at Dalston Junction, Hackney Central, and Homerton. Common Land – land subject to historical rights of common use. Usually this cannot be built upon and is protected from development. Compulsory Purchase Order (CPO) – an order made on an area of land to enable an authority to purchase compulsorily the land for an approved project. Must be approved by Central Government. Conservation Area – designated area of special architectural, historical or landscape interest which it is desirable to preserve and enhance. In a Conservation Area the Council has greater powers to control demolition and development. 315

Conversion – subdivision of premises into two or more, self-contained dwellings. Creche – a place where occasional part-time childcare is provided for carers using the facility e.g. a sports centre. CrossRail – a proposed Underground railway connecting Liverpool Street (City) and Paddington (Westminster), enabling through services from Shenfield and Reading/Aylesbury. Curtilage – the boundaries of a site area in which a building is situated. DoE – Department of the Environment. DoT – Department of Transport. Designated Roads – roads identified by the Secretary of State for Transport, to facilitate t r a ffic movement in Greater London. The Council must notify the Secretary of State of any parking, traffic management or development proposals affecting these. Development – the carrying out of building operations, engineering operations, or other operations in, on, over or under land, or the making of any material change in the use of any buildings or other land. Development Control – the control that the Council can exercise over development by the granting or refusal of planning permission. Dwelling – a building or any part of a building that forms a separate and self-contained set of premises occupied by a household. East London Line Extension – proposed extension of the existing East London Line to Highbury (Islington) and East Dulwich (Southwark) with proposed stations at Bishopsgate, Hoxton, Haggerston, and Dalston Junction (ELLX). Economically Active – persons in full or parttime work or unemployed and seeking work. (Housewives, the permanently sick, the wholly retired and full-time students are excluded as economically inactive). 316

Employment Generating Development – for the purposes of the UDP this is defined as development for business (Class B1), industrial (Class B2) and storage/distribution (Class B8) purposes. Family Housing – accommodation suitable for households including children, consisting of three or more bedrooms and normally including private garden space. G.L.D.P. – The Greater London Development Plan. Approved in 1976, this was the Structure Plan for Greater London. It provided broad strategy and policies for those planning matters affecting all of London. The Hackney Local Plan had to be consistent with the G.L.D.P. It will be replaced by borough UDP. General Development Order – all development requires planning permission. However, the Town and Country Planning (General Permitted Development) Order 1995 lists a number of operations to which planning permission is given automatically and therefore no application need be made to the local authority for planning permission. General Industrial Use (Class B2) – an industrial use which cannot be carried out in any residential area without detriment to the amenity of that area. G reen Chain – linked but separate open spaces and the footpaths that link them. (See LPAC Advice on Strategic Planning Guidance for London). Habitable Room – a room within a residential dwelling considered appropriate for occupation. Habitable rooms exclude bathrooms, and kitchens under 13 sq.m. (140 sq. ft.). Hostel – a property which provides short-stay or semi-permanent non self-contained accommodation, usually with services or supervison House in Multiple Occupation – a property which provides permanent non self-contained non-serviced, accommodation, e.g. bedsits, sharing bathroom facilities. London Borough of Hackney Adopted UDP – June 1995

Household – a person living alone or persons living at the same address with common housekeeping or sharing a common living or sitting room. Housing Associations – non-profit making organisation providing subsidised housing for rent or shared ownership. They are partly financed by grants from the Housing Corporation (a Government body responsible for their registration and regulation). L . P. A . C . – London Planning Advisory Committee – set up in November 1985 to consider and advise the Secretary of State for the Environment and all London Boroughs on matters of common interest to the planning and development of Greater London. Listed Building – a building of special architectural or historic interest included in a statutory list prepared by the Department of the Environment. Listed Building Consent – permission required from the Council for the demolition of, or any material alterations, both internal and external, to a listed building or within the curtilage or setting of a listed building. Locally Listed Building – a building of special architectural or historic interest which in the opinion of the Council is worthy of protection.These buildings are on the Council’s ‘Local List’. M e t ropolitan Open Land –strategic open space within the urban area that contributes to the structure of London. (See LPAC Advice on Strategic Planning Guidance for London).

National Rivers Authority (NRA) – the National Rivers Authority has statutory duties and powers in relation to water resources, pollution control, flood defence, fisheries, recreation and conservation. Planning Obligation – the achievement of a benefit for the local community made through an agreement between the developer and the Council to restrict or regulate the use of land or to provide facilities in association with development. (See Section 106 of the Town and Country Planning Act (as amended)). Planning Brief – a statement of the land use opportunities and contraints presented by a particular site, prepared by the Council for the guidance of potential developers. People with Disabilities – unless otherwise stated, people with a physical impairment which limits their ability to walk or their sight or hearing, or who need to use a wheelchair for mobility. Secretary of State for the Environment – the principal Government member in charge of all environmental issues including planning (see DoE). Section 106 (Agreement) – section under the Town and Country Planning Act 1990, allowing the local planning authority to enter into an agreement with any person interested in land in their area for the purpose of restricting or regulating the development or use of the land. (See Planning Obligation).

Mixed Use Developments – these include two or more uses in the development proposals. The actual proportion of different uses will be derived from application of appropriate policies of the Plan.

S E R P L A N – the London and South East Regional Planning Conference, a regional planning and transportation or g a n i s a t i o n constituted by the London Borough Councils and District and County Councils of the South East. (See LPAC Advice on Strategic Planning Guidance for London).

Mobility Housing – is ordinary housing built to a certain basic standard so that it can be adapted to be lived in by most people with disabilities (also known as lifetime housing).

Statutorily Homeless People – those who have no permanent home at all and for whom the statutory duties of local authorities are as set out in the Housing Act 1985.


317

Sheltered Housing – housing purpose built or converted exclusively as special needs housing such as for the elderly with a package of estate management services which consists of grouped, self-contained accommodation with an emergency alarm system, usually with communal facilities and normally with a resident warden. Site of Special Scientific Interest – an area of land notified under the Wildlife and Countryside Act 1981 as being of special nature conservation interest; the designation applies throughout Great Britain. (See LPAC Advice on Strategic Planning Guidance for London.)

Unfit Dwelling – premises considered unsuitable for residential use on account of structural disrepair or unsatisfactory lack of amenities. Use Classes Order – this includes a Schedule which prescribes classes of land use within which certain changes of use may take place without requiring planning permission. In most cases changes from one use class to another require planning permission.

Strategic Advice for London – provided by London Planning Advisory Committee in October 1988 to advise the Secretary of State and the London Boroughs in preparing their Unitary Development Plans. Strategic Guidance for London – provided by the Secretary of State for the Environment in July 1989 to guide London Boroughs in preparing their Unitary Development Plans. Tr a ffic Calming – an approach to traff i c management which reduces traffic volumes and its harmful effects as well as reducing traffic speeds through improvements to the physical environment. Generally this is used in residential areas to provide a safer environment and to prevent through traffic. Techniques include resurfacing, tree planting, road humps and width restrictions. Traffic Management Scheme – a scheme to promote more efficient traffic movement in a given area, and/or improve the area’s environment, by rearranging traffic flows, controlling intersections and regulating times and places for parking. Transport Policy and Programme (T.P.P.) – document submitted to the Department of Transport by the Council outlining its transport policies and seeking funding for its works programme. 318
