Crossrail: Bond St Station – Eastern Ticket Hall 18-19 ... · out the City Council’s planning policies, guidelines and constraints with regard to the future redevelopment of 18-19

Crossrail: Bond St Station – Eastern Ticket Hall18-19, Hanover Square, W1

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Document title: 18-19 Hanover Square, W1 – PLANNING BRIEF.Version: Post Consultation Draft

Date: 26 May 2005

Status: Revised on 26 May 2005

Filepath: j:D_City Planning Group/H drive group/Crossrail/draft planning briefs/ 18-19Hanover Square Planning Brief – revised draft May 05

Produced by: City of Westminster, City Planning Group, City Hall, 64, Victoria Street,London. SW1E 6QP

Contact: Mark Trevethan

Email: [email protected] Tel: 020 7641 6063

Crossrail: Bond St Station (Eastern Ticket Hall)18-19 Hanover Square, W1

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Contents

1 Introduction............................................................................................ 7

• Purpose of the Brief ............................................................................ 7

• Site and Surroundings ........................................................................ 7

• Site History ......................................................................................... 92 Planning Policy Framework ................................................................ 10

• Statutory Planning Framework ......................................................... 10

• Planning Policy Policies.................................................................... 113 Crossrail Considerations .................................................................... 12

• Safeguarding and Promotion ............................................................ 12

• Design and Layout............................................................................ 14

• Construction and Site Access........................................................... 144 Acceptable Land Uses......................................................................... 17

• The Need for Variety within the CAZ ................................................ 17

• Offices .............................................................................................. 18

• Residential........................................................................................ 19

• Retail ................................................................................................ 20

• Hotels ............................................................................................... 21

• Public Toilets .................................................................................... 215 Urban Design and Conservation ........................................................ 21

• 18-19 Hanover Square ..................................................................... 21

• Hanover Square Gardens................................................................. 246 Traffic and Public Realm Issues ......................................................... 25

7 Other standards and controls............................................................. 26

• Green buildings, Recycling and Sustainability .................................. 26

• Code of Construction Practice .......................................................... 27

• Designing Out Crime ........................................................................ 278 Planning benefits ................................................................................. 28

9 Contacts................................................................................................ 29

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List of Figures

Figure 1 18-19 Hanover Square Location Map ...................................................... 8

Figure 2 CLRLLL Safeguarding Limits and Proposed Work Site at 18-19Hanover Square..................................................................................... 16

Figure 3 Ground Floor Land Use in the Hanover Square area............................. 18

Figure 4 Listed Buildings and Conservation Areas in the Hanover Squarearea........................................................................................................ 22

Appendix 1 Cross London Rail Links Ltd’s proposals for construction activityand completed works – Bond Street station


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Executive Summary

As part of its approach towards the Crossrail proposals, the City Council ispreparing a series of planning briefs for the key sites across the city. Theaims of the briefs are to set out all the relevant Council policies and issuesrelating to the sites, and to seek to obtain the promoters’ of Crossrail (CLRLL)agreement to incorporate these matters into their proposals or anysubsequent proposals relating to CLRLL concerning this site. The CityCouncil supports the intention of CLRLL subject to considerations set out inthis, and the other briefs, being prepared. These draft briefs will assist theCouncil in its negotiating and petitioning strategy in respect of CLRLL’s hybridbill which was deposited in Parliament on 22 February 2005 for the powers toconstruct and operate Crossrail Line 1.

18 and 19 Hanover Square are bounded by Tenterden Street to the north andHanover Square to the east. Hanover Square is located within the City ofWestminster’s Central Activities Zone and also forms part of the MayfairConservation Area. The immediate vicinity of the Hanover Square areacontains a mixture of office, financial services, retail and restaurant services.This mix of uses is in line with Westminster’s planning policies for the CentralActivities Zone.

18 and 19 Hanover Square are currently safeguarded as part of Cross LondonRail Links’ (CLRLL’s) Crossrail Line 1 project and it is proposed that these twobuildings be demolished and rebuilt to provide the eastern ticket hall forCrossrail’s Bond Street Station. Although 18 and 19 Hanover Square arelocated within a conservation area, the buildings themselves were built prior toconservation area designation in the 1960s, and it is considered that neitherbuilding makes any positive contribution to the character or appearance of theMayfair Conservation Area. Both buildings are currently vacant.

The City Council support the development of 18 and 19 Hanover Square foruse as a Crossrail ticket hall and believe that it represents a considerabledevelopment opportunity to provide not only a new transport interchange, butalso residential units, replacement office space, hotel spaces or ground floorretailing within the scheme as a whole. Any development of the site byCrossrail must address the key development issues that are identified withinthis brief.

Any development of 18 and 19 Hanover Square must ensure that theenvironment around Hanover Square is protected from the adverse impacts ofconstruction and that issues such as site access and noise screening aresuitably addressed. In addition, any new building must be sensitivelydesigned and of a high quality to fit in with the existing character of theconservation area. Hanover Square Gardens are also protected under theLondon Squares Preservation Act (1931) and development within thesegardens, whether temporary or permanent, will not be supported by the City

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Council. Any development or temporary construction within Hanover SquareGardens will be strongly resisted by the City Council.

The City Council will also require that consideration be given to the impact ofthe increase in pedestrian flows that this development will bring to HanoverSquare and adjacent streets and will support the provision of appropriatemeasures to improve the pedestrian environment.

CLRLL’s final proposals for 18 and 19 Hanover Square will be expected totake account of and address the issues set out in this brief.


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1. Introduction

1.1 This brief primarily concerns 18 and 19 Hanover Square which aremodern seven storey buildings situated on the west side of the Square.The site is currently safeguarded for a new station entrance, ticket halland associated infrastructure for the proposed Crossrail Line 1 BondStreet Station. A second ticket hall and entrance is proposed at 65Davies Street, which is also the subject of a separate planning brief.The brief also concerns those areas of the square itself affected by theconstruction of Crossrail 1.

Purpose of the Brief

1.2 The purpose of this brief is to set out how 18-19 Hanover Square mightbe suitably developed to incorporate the requirements of Crossrail asregards the Hanover Square site. The brief considers the existingphysical characteristics of the site and the surrounding area and setsout the City Council’s planning policies, guidelines and constraints withregard to the future redevelopment of 18-19 Hanover Square. Thebrief also sets out the Counci’s requirements for the management ofthe construction of Crossrail 1 to ensure that the impacts on the squareare kept to a minimum.

1.3 This brief is a revised version of the draft planning brief for 18/19Hanover Square which was approved by the Planning andDevelopment Committee on 27 January 2005 for the purposes of publicconsultation. The current brief seeks to incorporate relevantconsultation responses and to update accordingly on circumstancesincluding the deposit of the Hybrid Bill on 22 February 2005 for powersto construct and operate Crossrail Line 1. On 26 May 2005, thePlanning and Development Committee agreed for the revised brief toremain in draft form as further discussions and negotiations take placewith CLRLL and the Department for Transport (Dft) on their proposalsand to take account of any further comments from affected parties.The principal issues raised through consultation have beenincorporated into the revised brief and it is proposed that the briefs forthe Crossrail sites are reconsidered later in 2005/6 for formal adoption.

Site and Surroundings

1.4 Hanover Square is located in Mayfair and is situated around 100msouth of Oxford Street.

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Figure One: 18-19 Hanover Square Location Map

Oxford Street

Brook Street

Davies Street

Hanover

Square

New Bond Street

Grosvenor Street

South Molton Street

Oxford Street

Regent Street

18-19 Hanover Square

Bond Street Underground Station

65 Davies Street

Reproduced from Ordnance Survey mapping with the sanction of Her Majestry's stationery Office, Crown Copyright. Unauthorised reproduction may lead to prosecution or civil proceedings. City of Westminster LA086592

Oxford Circus Underground Station

1.5 Both existing buildings comprise basement, ground and six upperfloors. They have been in class A2 and B1 use but are currentlyunoccupied. The buildings have a combined site area of 0.2 hectares(0.5 acres), a 33 metre frontage onto Hanover Square and a 51 metrereturn frontage onto Tenterden Street. There is a private yard to therear of both properties that is reached from New Bond Street.

1.6 The site lies within the Mayfair Conservation Area. Both buildings wereerected in the post war period, prior to the designation of theConservation Area, and it is considered that neither building nowmakes a positive contribution to the character or appearance of thearea.

1.7 Hanover Square is important in historical terms and very sensitive inurban design terms. It was laid out in 1710 and is a good example ofthe formal town planning of that period although its setting has beenpartly compromised by some inappropriate developments. The gardensat the centre of the Square are protected under the London SquaresPreservation Act 1931.

1.8 A number of buildings fronting the square, including No. 20 and 21, arelisted. No. 20 is listed Grade II* and No. 21 Grade II. Historic buildingsaround the square, including No’s. 20 and 21, tend to be in brick anddomestic in scale whilst the larger commercial buildings of the late 19th


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Century and of the 20th Century tend to be in stone or faience. 20Hanover Square is a substantial terraced town house dating from 1718-20. The building is made from darkened yellow stock brick andconsists of four storeys, an attic and a basement. 21 Hanover Squareis a town house dating from between 1740-50 that was remodelled inthe mid-19th Century. The building is made from red brick withPortland stone and painted dressings and incorporates three storeys, abasement and a slated mansard roof with dormer window.

1.9 The immediate vicinity is a mixture of office, financial services, retailand restaurant uses typical of this part of Mayfair. Oxford Street liesjust 100 metres to the north. New Bond Street and Regent Street areboth a similar walking distance away.

Site History1.10 No. 18 (incorporating also 1A Tenterden Street) was erected pursuant

to a 1963 permission. With regard to recent planning history, planningpermission was granted in 1994 to use the northern part of the groundfloor as a showroom for a temporary period of 4 years. This permissionexpired in 1998 and a continuation of this use was granted in 1995 fora further temporary period expiring in 2000. At the expiration of thisconsent, use was to revert to offices. In February of 2000, permissionwas granted for the continued use of the northern part of the groundfloor as a showroom for a temporary period until January 2008. Furtherto this, permission was granted in 2003 for the dual use of the groundfloor as either Class A1 or showroom purposes and also for thecreation of new entrances on the Hanover Square and TenterdenStreet elevations.

1.11 No. 19 was erected pursuant to a 1971 permission (modifying anearlier 1963 permission) for basement car parking, storage andshowroom; ground floor showroom; first floor showrooms and offices;and second to sixth floor offices. Permission was subsequentlygranted in 1976 for the use of parts of the basement and ground flooras a building society office (now Class A2). In 1993 permission wasgranted for a new shopfront at 19A Hanover Square. In 2002permission was granted for various alterations to 19 Hanover Square,including a new ground floor entrance and canopy and a rear extensionat third and fourth floor levels for B1 (office) purposes incorporating aroof terrace.

1.12 In 1995 an application was submitted for the redevelopment ofnumbers 18 and 19 Hanover Square and the erection of a seven storeybuilding comprising offices with retail units on part of the ground floor.This was proposed to be built above a proposed basement Ticket Hallfor Crossrail. This application was subsequently withdrawn. Anotherproposal for the site was submitted in 1998 that was granted subject toa legal agreement which was completed in February 2005(PT/98/06480/FULL). This planning permission is for theredevelopment of 18 and 19 Hanover Square to form a new seven

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storey building comprising B1 offices with A2 offices and CrossrailTicket Hall on the ground floor. The architects for this scheme alsosubmitted an alternative scheme for the building (in the event ofCrossrail not going ahead) that included the provision of residentialaccommodation at the rear, mainly fronting onto Dering Yard, off NewBond Street, and the provision of a limited amount of basement carparking.

1.13 The Crossrail scheme promoted in the early 1990's includedredevelopment proposals for 18-19 Hanover Square, incorporating aticket hall, over-site commercial development, and work site forCrossrail. A planning brief was prepared for this site in 1992, and thiswill replace that brief.

2. Planning Policy Framework

Statutory Planning Framework

2.1 The relevant statutory planning framework for this site is set out in:

• The Government’s Planning Policy Guidance (PPG) notes andPlanning Policy Statements (PPS), particularly PPG1 (GeneralPolicy and Principles), PPS12 (Local Development Frameworks),PPG13 (Transport) and PPG 15 (Planning and the HistoricEnvironment);

• The Mayor’s London Plan, 2004;

• The City of Westminster’s draft Replacement UnitaryDevelopment Plan (UDP) 2004;

• City of Westminster Supplementary Planning Guidance.

2.2 The City of Westminster’s draft Replacement Unitary DevelopmentPlan (UDP) contains the policies against which the futureredevelopment of 18-19 Hanover Square and the Crossrail project willbe considered. The UDP is the subject of a Direction under section17(1) of the Town and Country Planning Act 1990, issued by the FirstSecretary of State on 9 December 2004. The Direction relates only topolicies for affordable housing, but it prevents the adoption of the wholeplan.

2.3 The most relevant policies are listed below, but any development willneed to comply with the UDP as a whole. The main policy areasrelevant to this brief address transport, the environment, urban designand conservation and shopping and services.


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Principal Planning Policies

2.4 In transport terms, any future planning application for the constructionof a ticket hall at 18-19 Hanover Square will be assessed against thefollowing policies:

• STRA 20 Integrating Land Use and Transport• STRA 21 Walking, Cycling and Public Transport• STRA 22 Reducing the Environmental Effects of Transport• STRA 24 Servicing, Delivery and Collection• TRANS 2 Road Safety• TRANS 3 Pedestrians• TRANS 5 Surface and Underground railways• TRANS 8 Improved Public Transport Access• TRANS 14 Transport Assessments• TRANS 20 Servicing, Deliveries and Collection

2.5 These policies encourage and support improvements to the main linerail termini, Underground stations and associated interchange facilities,including improved access to and capacity of stations andinterchanges. In addition, these policies also deal with the assessmentof development proposals for their impact on traffic generation and alsothe way in which developments are serviced to ensure that thevehicular servicing needs of developments are fully accommodated.

2.6 With regard to urban design and conservation issues, the proposals fordevelopment at 18-19 Hanover Square will be assessed against thefollowing policies:

• STRA 26 Improving Access to Facilities and Buildings• STRA 27 Standards of Design• STRA 28 Conservation Areas and the World Heritage Site• STRA 29 Listed Buildings, Historic Parks and Gardens and

Archaeology• ENV 1 Sustainable and Resource-Efficient Buildings• ENV 2 Environmental Appraisal• ENV 6 Noise Pollution• ENV 16 Trees and Shrub Cover• DES 1 Principles of Urban Design and Conservation• DES 2 Extensive Development• DES 4 Infill Development• DES 7 Townscape Management• DES 9 Conservation Areas• DES 10 Listed Buildings• DES 12 Parks, Gardens and Squares

2.7 These policies seek to promote the highest standards of sustainableurban design, to preserve or enhance the character and appearance ofconservation areas and to protect and enhance both the setting of

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listed buildings and the appearance and historical integrity of parks andpublic and private squares.

2.8 In terms of the future land use of the oversite development at 18-19Hanover Square, the following policies are relevant:

• STRA 4 Mixed Use Development• STRA 11 Shopping in the West End and Knightsbridge• CENT 3 Mixed-Use Development in Central Westminster• COM 1 Office Renewal and Growth• COM 2 Offices and Mixed Use Development in Central

Westminster• H3 To encourage the provision of more housing• H4 Provision of Affordable Housing• H8 Provision of Homes for Long Term Needs• SOC 8 Public Toilets• SS4 New Retail Floorspace in the CAZ and CAZ

Frontages• TACE 2 New Hotels and Extensions to Existing Hotels• TACE 8-10 Entertainment Uses

2.9 These policies consider the potential for office, residential and retaildevelopment within the CAZ of Westminster.

3. Crossrail Considerations

Safeguarding and Promotion

3.1 The central tunnelled section of Crossrail (west of Paddington to east ofLiverpool St) was made the subject of a Safeguarding Direction by theSecretary of State for Transport in October 1991 and revised in July2004. The main purpose of the Direction was to prevent developmentthat could preclude the future construction of the line. TheSafeguarding Direction is now a part of the Hybrid Bill submitted by theSecretary of State for Transport to Parliament on 22 February 2005.Accompanying the Direction are plans which identify:

• Limits of land subject to consultation with the promoters of Crossrail(before granting planning permission)

• Areas within these limits which are of “surface interest” (areas ofpossible surface intervention such as ticket halls, ventilation shaftsand work sites)

3.2 The site which is the subject of this planning brief is an “area of surfaceinterest”, and the safeguarding designation is shown on Figure Two.


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3.3 The City Council strongly supports Crossrail Line 1 with a link toHeathrow as the best medium to long term opportunity to improve railbased transport in London. It is now being promoted by a jointcompany Cross London Rail Links Ltd (CLRLL), a joint venturebetween Transport for London and the Department for Transport. Toassist in the Council’s negotiations with CLRLL draft planning briefshave been prepared for key Crossrail sites across the City, of whichthis is one.

3.4 The Secretary of State for Transport deposited a Hybrid ParliamentaryBill on 22 February 2005, seeking powers to build and operateCrossrail Line 1. The Bill requires a second reading in Parliamentbefore a formal perioed can be set to receive petitions.

3.5 The City Council supports any rail project that seeks to improve thequality, reliability and accessibility of public transport and this is set outin the Unitary Development Plan, (policy STRA 20). The City Councilhas consistently supported the Crossrail proposal, on the alignmentsafeguarded by the Secretary of State since 1991. However, the CityCouncil also has clear policies to protect the general amenity ofresidents, businesses and visitors in Westminster against any adverseenvironmental impact. Therefore a petition is required to identify theseaspects of the Bill which do not, currently, meet the Council’s policiesor concerns and to seek amendments.

3.6 Officers are in the process of assessing the Bill and its supportingdocumentation. This will establish the City Council’s position and itspotential petition on generic aspects as well as site-specific issues. Atthis stage it is not clear that the Department for Transport / CLRLLhave submitted all of the relevant information to enable a clearjudgement to be made on the impact of the project. The City Councilhas hosted and chaired meetings with other London Local Authoritiesto establish areas of common concern, to consider joint petitioning andto explore the economies and protocols of “Lead Authority” beingadopted on specific petitioning points. Formal adoption of the Crossrailplanning briefs should follow later in 2005 and their content will beincorporated into any forthcoming petition to Parliament on Crossrail’scurrent proposals, should negotiation prove unsuccessful.

3.7 CLRLL’s timetable for Crossrail line 1 assumed that the start ofpassenger service could be Summer 2013 with advanced worksbeginning in Summer 2005 and full construction starting in Summer2007 after the proposed bill receives Royal Assent. However, as notedearlier this timetable is becoming increasingly unrealistic and the CityCouncil urges CLRLL to provide a more realistic timetable.

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Design and Layout

3.8 CLRLL propose to locate the eastern ticket hall of Bond StreetCrossrail Station in the ground floor of 18 and 19 Hanover Square.The 1990 Crossrail scheme had previously proposed the ticket hall atbasement level. A single entrance would be at the corner of TenterdenStreet and Hanover Square. From this eastern ticket hall, one flight ofescalators would provide access to the Crossrail platforms.

3.9 The City Council believes that a ticket hall at street level linked to theplatforms by a single flight of escalators would appear to offermaximum accessibility to the greatest number of passengers,especially those with impaired mobility. The City Council will alsorequire that lifts be put in place to ensure that movement for those withimpaired mobility be made as easy as possible.

3.10 CLRLL also propose that emergency escape access and serviceaccess will be located to the side of the ticket hall onto TenterdenStreet to minimise disturbance in the main square area. Policy TRANS20 sets out the City Council’s requirement for premises to offerconvenient access for service vehicles (including access by theemergency services) and any development proposals should conformto this requirement.

3.11 The City Council are also aware that the development will need toaccommodate a ventilation shaft to serve the new railway line below.CLRLL have indicated that this will need to be a minimum of 10m indiameter. It should be located on the rear half of the site where it willbe positioned directly above the railway and where it must besuccessfully screened from the street. It should be incorporated intothe fabric of the new development. It will be a requirement of the CityCouncil that the ventilation shaft should not be visually intrusive orcause loss of amenity through noise, vibration, fumes or air turbulenceto adjoining occupiers.

Construction and Site Access

3.12 Development of the Crossrail scheme will require a work site within orimmediately adjacent to the Square. This site will be required for theduration of construction work on the new platforms and deep levelstation tunnels and passageways for the whole Bond Street Station, aswell as the 18-19 Hanover Square ticket hall and escalator shaft. Theextent of the working site area will depend upon the technicalrequirements of Crossrail. CLRLL currently propose that the worksitewill entail the closure of the western side of Hanover Square. The CityCouncil is anxious to ensure that the developers and promoters ofCrossrail minimise any disruption, whether temporary or permanent, tothe historic fabric and character of the square, in accordance with UDPPolicy TRANS 5, and to the highway and the movement of people, inaccordance with UDP Policy TRANS 14.


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3.13 The extent of the work site will include Tenterden Street, the westernhalf of Hanover Square, and the western part of Hanover SquareGardens. One major requirement of the work site is the need for atemporary construction shaft to enable construction of deep leveltunnels at Bond Street Station. CLRLL propose to locate this shaft inthe western part of Hanover Square Gardens.

3.14 The City Council will strongly resist any development or temporaryconstruction in Hanover Square Gardens by CLRLL. TheEnvironmental Statement accompanying the Hybrid Bill states that analternative option for the location of the temporary construction shaft iswithin 18/19 Hanover Square if the platfrom tunnels were completebefore the arrival of the tunnel boring machines. (Crossrail Line 1Environmental Statement – Assessment of Heritage and LandscapeImpacts – Vol 3, section 4.3.) This option remains a possibility if 18/19Hanover Square are purchased in advance of the works.

3.15 Any development within the gardens would have very clear implicationswith regard to:

• the impact on trees located within the gardens• the impact on the character of the Hanover Square area and the

wider Mayfair Conservation Area• the impact on movement within and around Hanover Square• the temporary loss of amenity for both pedestrians and

occupiers within the Hanover Square area.

3.16 In order to avoid any damage to the Gardens, the City Council will notpermit any use of the Gardens for construction work and CLRLL shouldinstead purchase 18/19 Hanover Square in advance of the works.

3.17 Paragraphs 5.16 to 5.20 address the issue of any potentialdevelopment within Hanover Square Gardens in more detail.

3.18 The City Council will also seek to minimise the impact of the schemeon any part of the public highway.

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Figure Two: Safeguarding Limits (2005) and CLRLL’s ProposedWork Site at 18-19 Hanover Square

3.19 The gardens contain a series of mature trees which are a part of theformal layout of the square and make a very positive and significantcontribution to the character and appearance of the area. Thesemature trees have extensive root systems and will be highlysusceptible to damage by any construction activity within their rootzone. In order to give adequate protection to the trees, the Council willresist any construction activity within Hanover Square Gardens. TheCity Council will also ensure that street trees are also afforded a highlevel of protection during the construction period.

3.20 Depending upon projected noise levels from the construction site, theCity Council will require acoustic screening to be put in place by thedeveloper to protect the quiet environment of the square.

3.21 As this site abuts an important Grade II* listed building at No. 20, thesafeguarding of this building will be of paramount importance. Thepromoters and developers of Crossrail should refer to the City Council’sSupplementary Guidance note on ‘The Protection of Historic Buildingsin Westminster’ (2000), and consider at the earliest stage howexcavation near to No. 20 will be kept to an absolute minimum. Any


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application to redevelop should be accompanied by a methodstatement which sets out the safeguards to be employed during bothdemolition and reconstruction to ensure the retention of that buildingwithout damage to its structure. Any scheme without categoricassurances on this matter will not be considered favourably by theCouncil.

3.22 The promoters and developers of Crossrail may wish to explorewhether it would be feasible to incorporate within the basement of thenew building a working area sufficiently large for Crossrail’s purposesso that construction of the oversite development can proceed at theearliest opportunity.

3.23 Access is currently proposed into the site through a one way systemalong Brook Street and out of the site up Harewood Place and acrossOxford Street. Lorry routes are a key issue and it will be necessary forvehicle types and routes to be agreed between the promoters anddevelopers of Crossrail and the City Council in advance so that theycan be incorporated into a Code of Construction Practice that can be atwo part document- Part A generic and Part B site specific. Routes forconstruction traffic should minimise the use of local road networks.

3.24 While it is acknowledged that this development will result in traffic andparking problems during the construction period in and around HanoverSquare, the City Council will endeavour to keep these problems to aminimum and, where significant problems do occur, manage them aseffectively as is possible in conjunction with all other relevant parties.

3.25 Detailed matters of construction will be addressed in the Code ofConstruction Practice that will be drawn up between the promoters anddevelopers of Crossrail and the City Council before any constructionwork begins. The general background to the City Council’s approach isset out in the existing 2003 CCP used in PSPA and other key sites.

4. Acceptable Land Uses

The Need for Variety within the CAZ

4.1 The site lies within the Central Activities Zone (CAZ) as defined in theUnitary Development Plan. The City Council seeks to ensure themaintenance and enhancement of a mix of uses in central Westminsterand expects commercial development on individual sites within thezone to provide additional accommodation for activities which willcontribute to the character and function of the particular locality.Residential use should, however, be the first consideration in terms ofadditional uses.

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4.2 The potential for a variety of uses within Westminster is also furthersupported by Policy STRA 4 on Mixed Use Development whichconfirms the City Council’s aim of maintaining and enhancing the mix ofuses in central Westminster.

4.3 The following map shows the existing ground floor land uses in thearea surrounding 18-19 Hanover Square.

Figure Three: Ground Floor Land Use in theHanover Square Area

PO

20.4m Bank

LB

CelaneseHouse

MA

SON

'S AR

MS

MEW

PH

20

26

28

3268

65

2

1

34

39

35

31

27 29

2523

112

115

116 11

7

5 6

59 58

17

135 to 11

13a

18

2 5 to 27

1 9 to 2 4

1 2

SOUTH MOLTON

STREET

PRINCES STREET

LB

Je rvi s

Court

Bank

Bank

LillyHouse

25.63mHA

REW

OO

D PL AC

E

Hano ver H

ous e

LBBe rkertex Hou se

OXFORD STREET

UnionYard

DERING STREET

Burlian House

25.1m

24.6m

PO

Haunch of

Ven i son Ya rd

Bank

BLENHEIM

STREET

BM 24.15m

23.8m

PH

DERING STR

EET

PH

23.0m

NEW BO

ND STREET

21.8m

BROOK STREET

Bank

22.5m

BM 23.10m

Bank

TENTERDEN STREET

HA

NOVE

R SQ

UAR

E

Fn

Pond

Hanover SquareGarden

Statue

ST G

EOR

GE

ST R

EET

LB Bank

Vogue House

23.7m

HANOVER STREETHanover Court

T CB's

HAN

OV

ER SQ

UAR

E

28

3

7 86

5

4

10

64

94

2

8

11

95

100

106

105

110a 11

0

64

66

68

18

12 to 16

11

75

76

10

9

8

780

321 to 329

315 to 319

30 29

26 25

24

20 to 23

19

313

311

301 to 309

299

57

14

1 7

3

1

1a

18

21

4

6

8 to 12

1416

18

5 to 11

22

23

24

25

18

5

19 to 24

1

3

8

12 11

7

4

10 9 8 7

81

19

21 20

6

6

12

12 11

13

2

332 330 328

67

4

Bank

Bank

T CBs

18

2 0

1

6


A1 - Shops, Travel and Ticket AgenciesA2 - Banks, Building SocietiesA3 - Restaurants, Pubs, CafesB1 - OfficesB2 - General IndustrialB8 - Wholesale WarehousesC1 - Hotels and Guest HousesD1 - Places of Worship, Health Centres, Museums, Education CentresD2 - Cinemas, Music Halls, Sports Halls, CasinosSG - Sui Generis

UC - Unclassified

Land Use (Ground Floor)

Source: Goad Retail Data 2002

Offices

4.4 Office development within the CAZ will be acceptable on this sitesubject to compliance with Policy COM 1, which relates to the provisionfor office renewal and growth. Although this policy makes it evidentthat the scope for major new office developments providing largeindividual increases in floorspace within the CAZ is limited, it doessupport the modernisation and redevelopment of existing office stockwithin the CAZ and this is relevant for any oversite development thattakes place above the ticket hall.

4.5 There may be some scope to increase the amount of officeaccommodation on the rear part of the site of 18 Hanover Square,subject to the normal requirement to ensure that adequate daylightcontinues to reach adjoining properties. However, the replacement


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buildings should not exceed the height of the existing buildings in ordernot to adversely impact on the setting of the adjacent listed buildings.

4.6 Office development on the site should also comply with Policy COM 2.It should be recognised that any increase in office floorspace wouldtrigger the requirement under Policy COM 2 to provide an equivalentamount of residential floorspace. It is the view of the City Council thatthe site is suitable to accommodate the provision of residential units.Within the CAZ, policy CENT3 also requires the provision of housing tomatch any increase in commercial floorspace (including hotel and retailfloorspace).

4.7 It will be up to the applicants to demonstrate to the City Council’ssatisfaction that it is not appropriate or practical to provide housingwithin the development site before the City Council will consider theappropriateness of alternative uses instead of the housing requiredunder the policy. Applicants should also demonstrate to thesatisfaction of the City Council that consideration has been given to theprovision of the required housing on another site in the vicinity of thedevelopment site if this is a practical option.

4.8 Where it is not possible to provide housing, then the Council will requirethe provision of other appropriate uses (either in additional floorspaceor new uses) as these will contribute to the mix of uses in the CAZ andhelp enhance the character and function of localities in CentralWestminster. If it is not possible to provide housing or appropriatealternative uses, then the City Council will expect a payment to usetowards the funding of affordable housing in accordance with theformula as set out in paragraphs 3.72-3.80 of the UDP.

4.9 The main entrance of any office accommodation should allow foraccommodating the entrance to the Crossrail ticket hall at the corner ofTenterden Street and Hanover Square.

Residential

4.10 The City Council’s long standing aim is to stem the decline of the City’sresidential population so that stable communities can be established. Itis therefore the Council’s objective to encourage the provision of newpermanent housing and increase the permanent resident population ofthe City. Policy H3 states that the Council will normally requireadditional housing to be provided with commercial or otherdevelopments in accordance with policies COM 2 and CENT3 (seepoint 4.6 above).

4.11 The provision of affordable housing is an important issue inWestminster. In relation to potential residential development on thesite, Policy H4 sets out the Council’s criteria for the provision ofaffordable housing. The policy requires affordable housing from

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development schemes with 15 or more residential units or sites of 0.5hectares or over.

4.12 Policy H4 underlines the circumstances under which the City Councilwould waive the requirement for affordable housing to be provided aspart of a residential development. The waiving of the requirement inthese cases does not mean that the City Council considers that thesesites are inherently unsuitable for affordable housing. Rather theCouncil recognises that a financial contribution to a special affordablehousing fund administered by the City Council instead of on-siteprovision in these cases may make it easier to develop housing onthese particular sites. These contributions will be spent on providingaffordable housing in the City.

4.13 The City Council acknowledges that, in this instance, the majorplanning benefits to accrue from the development are likely to be thoserelated directly to the Crossrail project. Any proposed residentialprovision should be self-contained with independent access fromTenterden Street.

4.14 In line with Policy H8, the City Council will require that, in all housingdevelopments of 25 or more dwellings, 10% of the units should bedesigned, or capable of easy adaptation to, housing for long termneeds. This percentage will be applied to both the market andaffordable housing elements of housing schemes.

Retail

4.15 Given the need to accommodate both the station entrance and mainoffice entrance on the Hanover Square frontage, the City Council willnot necessarily require the reintroduction of Class A2 space on thisfrontage.

4.16 However, it should be possible to provide some limited Class A1 retailspace in association with the ticket hall. The introduction of retailspace fronting either Hanover Square or Tenterden Street would helpto strengthen linkages with the main retailing frontages of Oxford Streetand New Bond Street. The enhancement of the retail function andmixed-use character within the CAZ is supported by Policy SS 4 whichrelates to the provision of new retail floorspace in the CAZ and the CAZfrontages.

4.17 A3 uses, such as bars and restaurants, are unlikely to be acceptableon this site due to the relatively quiet character of Hanover Square andits predominantly business function. Entertainment uses wouldadversely affect the character and function of the Square. A3 uses aresubject to policies TACE 8-10 of the UDP.


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Hotels

4.18 The City Council is keen to ensure that a range of good quality visitoraccommodation is available to support London’s role as a world visitordestination, without adversely affecting the quality of life of localresidents and the surrounding environment.

4.19 Policy TACE 2 sets out the considerations that the City Council will lookat when determining planning applications for new hotels within theCAZ and in streets which do not have a predominantly residentialcharacter. Hotel floorspace falls within the UDP’s definition ofcommercial floorspace and any increase in commercial floorspace onthe site will trigger the requirements of policy CENT3 (see paragraph4.6)

4.20 Any new hotels should be designed to be sensitive to the character andscale of the surrounding area. Where appropriate, the City Council willattach conditions to planning applications for hotel development toensure that functional areas within hotels, such as restaurants, bars,conference and banqueting facilities, are restricted to use by residenthotel guests only and that such areas are only used in conjunction withthe main use of the building as a hotel.

Public Toilets

4.21 As this site is a transport interchange the council will seek safe andsecure public toilets, which include baby changing and feeding facilitiesas part of the development proposals (SOC 8).

5. Urban Design and Conservation


5.1 The site is within the Mayfair Conservation Area and therefore asensitive high quality design is essential in any new development. Thereplacement buildings should:

• be modern, in a classical idiom, of the highest architecturalquality;

• conform with and preserve the historic plot pattern, and bearticulated as two separate buildings to Hanover Square, with athird independent elevation to Tenterden Street ;

• preserve the setting of the adjoining listed buildings;• reduce the existing height differential with the adjacent listed

building and certainly be no higher than the existing buildings;

22

• use traditional materials, such as Portland stone, faience andbrick; and

• enhance the Mayfair Conservation Area.

5.2 The following map highlights the listed buildings that are located in thevicinity of 18-19 Hanover Square.

Figure Four: Listed Buildings and Conservation areasin the Hanover Square area

20.4m

AV

PH Lancashire Court

CBsLancashi

re Cour t

Bank

LB

19.9m

CelaneseHouse

ST GEO

MASO

N'S ARMS

MEWS

PH

BM 22.55m

MIL L ST

St George'sChurch(C of E)

20

26

28

3268

65

39a

22

23

53 54

52 12

111

8

8

14 13 12

17 16 15

18

20

35

31

27 29

2523

112

115

116 11

7

118

120 t

o

123

50 49

52 51

53

56

59 58

17

13 5 to 11

13a

18

13 to

14

46

12a

b

2928

25 t o 2 7

19 t o 2 4

1 2

4442

38

36 3

4

3230

11

2a

2

H MOLTONT

MADDOX STREET

122

Lancashi

re Cour t

4 to 6

PRINCES STREET

LB

Jer vis

C ourt

Bank

Bank

LillyHouse

REWO

OD PLA CE

Hanover House

LB

Ber kerte x H

ous e

OX

UnionYard

DER ING STREET

Burlian House

24.6m

Haunc h o f

Venis on Yard

Bank

T

.15m23.8m

PH

DERING STREET

PH

23.0m

NEW BOND S TREET

21.8m

BROOK STREET

B ank

22.5m

BM 23.10m

Bank

TENTERDEN STREET

HANOV ER SQ

U ARE

Fn

Pond

Hanover SquareGarden

Statue

ST GEORG

E

ST REE T

LB Bank

Vogue House

23.7m

HANOVER STREETHanover Court

TCB's

HA NOVER SQ

U AR E

Bank

POLL E

N S

T

28

3

7 8

94

95

100

106

105

110a 11

0

6 4

66

68

18

12 to 16

11

75

76

10

9

8

78 0

321 to 329

315 to 319

30 29

26 25

24

20 to 23

19

313

311 7

14

17

3

1

1a

18

21

4

6

8 to 12

1416

18

5 to 11

22

23

24

25

18

1312

11

10 9

5

19 to 2 4

1

3

8

12 11

67

4

10 9 8 7

81

19

21 20

25 24

1

6

12

12 11

132

67

4

Bank

Bank

TCBs

18

20

6

MADDO

X STR

EET

MIL4

5

1213

1719

23

25

3335 to 39

2826

2422

POL

LEN

ST REE T

MADDO

X ST RE

ET

BM 24.85mHANOVER STREET LB

ET

PRINCES

STREET

PH

27

247

245

235

to 2

41

229

1 t o 2

5

1413

20 19

21

6

6a

12

12a

18

3

6 t o 7

12 1

126

24

14

20

250

1315

3

Conservation Areas Listed BuildingsGrade IGrade IIGrade II*



Regent StreetMayfair

Hanover Square Gardens(Non-Statutory Register of Gardens of Special Historic Interest)

5.3 The existing buildings at 18-19, Hanover Square do not make apositive contribution to the character and appearance of theconservation area and their demolition is uncontentious, subject to theirreplacement with a high quality modern building.

5.4 Policies DES1, DES 4 and DES 7 set out the City Council’s normalrequirements regarding the form and design of new buildings in thissort of context. Further advice is set out in the City Council’ssupplementary planning guidance note on design, “Design Matters inWestminster” (2001).

5.5 A new building should repair the damage done to the western side ofthe Square following its redevelopment in the 1960/70’s. Therefore itshould respect and enhance the setting of the two listed buildings at 20


23

and 21, and enhance the character and appearance of the MayfairConservation Area.

5.6 The new building should not exceed the height and bulk of the existingbuilding envelope with a sheer façade onto Hanover Square to matchthe height of the adjacent listed building. Any storey above the heightof the parapet of No.20 Hanover Square should be recessed with anyplant enclosed within the building so as not to project from the newroof.

5.7 The design of the ground floor frontages should be integrated into thedesign of the building as a whole, and should respond positively to thedesign of the ground floor façades of the listed buildings. Largeopenings are unlikely to be acceptable.

5.8 The facades to the Square should exhibit

(a) a balance of horizontal and vertical emphases; and(b) a degree of richness and modelling, compatible with the listed

buildings adjacent.

5.9 Traditional materials should be used including high quality brickwork,natural Portland stone, faience, lead and/or slate. Extensive glazing isnot appropriate and will not be acceptable.

5.10 In relation to the construction of a new building, regard should be hadto the City Council’s Supplementary Planning Guidance on “DesignMatters in Westminster “(2001) and Development and Demolition inConservation Areas (1996).

5.11 Regard should also be had to the City Council’s SupplementaryGuidance on Sustainable Buildings (2003) when the design of thebuilding is being planned. This guidance provides information abouthow buildings can become more sustainable as well as explaining theneed for sustainable buildings, the rich building heritage of Westminsterand the City Council’s planning policies.

5.12 Also relevant are Policies DES 9, DES 10 and DES 12. Policies DES 9and DES 10 concern, respectively, the preservation and enhancementof conservation areas and their settings and the protection of both thefabric and setting of buildings of special architectural or historic interest.Policy DES 12 is concerned with the preservation and enhancement ofthe appearance and integrity of open spaces and their settings.

5.13 Policy DES 7 (A) is also relevant as it sets out the City Council’s aim toensure the highest standards of design in all townscape details. DES 7(A) states that the provision of public art will be encouraged inassociation with all large development proposals, includingredevelopments. Policy DES 7 (A) also outlines the standards that areexpected for any public art feature that is provided as part of adevelopment proposal.

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5.14 The City Council encourages the provision of high quality public art andwelcomes the inclusion of appropriate visual arts within developmentproposal schemes and will seek their provision as planning agreementsthrough the operation of Policy STRA 7.

5.15 Policy ENV 2 (A) of the UDP lists a number of developments for whichEnvironmental Impact Assessments (EIA’s) are usually required.Transport interchange facilities are included on this list so, bearing inmind the potential impact of the scheme on the environment, an EIAwill be required for the proposed development.

Hanover Square Gardens

5.16 The City Council regards public and private squares as essentialelements of the townscape. Most of the squares are protected underthe terms of the London Squares Preservation Act, 1931. HanoverSquare is also included on the non-statutory register of gardens ofspecial historic interest held at English Heritage.

5.17 It will be a requirement of the City Council that no development orconstruction be allowed within Hanover Square Gardens. Anydevelopment within Hanover Square Gardens would have very clearpublic open space implications, affect the trees within the square andimpact on the character of the square as a whole. Policy DES 12 of theUDP resists any development of land forming part of a public or privatesquare, and any developments that adversely affect their integrity orappearance.

5.18 The City Council is not convinced that development or construction inHanover Square Gardens by CLRLL is necessary and the Council willpetition against it . The Council will petition for the early purchase byCLRLL of 18/19 Hanover Square to enable construction of the platformtunnels from this site before the tunnel boring machines arrive at thissite.

5.19 Should Parliament allow engineering works to take place withinHanover Square Gardens, the City Council will seek to ensure that thedeveloper provides suitable compensation to make up for the loss ofamenity during the time period that development has lasted, as well asfully restoring any damage and losses that occur during construction.Ground rental will be charged to cover this and the compound for theMOD works on Victoria Embankment provides a good example of thesignificant sums that can be involved in such rental and restitution to anacceptable condition.

5.20 Hanover Square Gardens also contains a number of mature trees andthe City Council is concerned to ensure that all of the trees areretained. If the loss of a tree becomes unavoidable, the City Councilwill, in accordance with Policy ENV 16, require that replacement trees


25

be planted. These replacement trees must be mature specimens to thesatisfaction of the City Council.

5.21 If the Council considers that the impact of construction on the Gardenscannot be satisfactorily mitigated, the Council may require the full,authentic restoration of the Gardens to their original layout (includingmature specimen trees) at the promoters expense.

Archaeology

5.22 The promoters of Crossrail must properly assess and plan for thearchaeological implications of the proposals so that the schemeincludes appropriate archaeological safeguards in line with policy DES11 of the UDP. Such safeguards normally consist of design measuresto ensure the permanent preservation of archaeological remains in situor, where that is not appropriate, archaeological rescue investigationsin advance of development.

6. Traffic and Public Realm Issues

6.1 The new ticket hall will generate a substantial increase in pedestrianflows in and around Hanover Square. This will exacerbate the existingproblems of pedestrian/vehicular conflict in the Square. The detailedplanning and design of the new ticket hall must therefore consideroptions for street level works to deal with the increased pedestrianflows. Proper provision for pedestrian access to the CLRLL station isrequired, including provision for pedestrian crossing facilities, to meetexpected demand as part of the CLRLL proposals and to be providedby the promoter.

6.2 Policy TRANS 3 (A) outlines the factors that the City Council will takeinto account when considering planning applications in order to ensurethat pedestrian activity is adequately catered for and that, wherepossible, conditions for pedestrians are improved. In addition,opportunities to facilitate movement by pedestrians will be taken toenable more direct, quicker and safer movement. Surface-levelpedestrian crossings and other facilities, which aid pedestrians, will beprovided where the demand from pedestrians or the safety recordjustifies them.

6.3 The issue of interchange between Crossrail Line 1 and buses and taxisshould also be addressed by the promoters and developers of Crossrailand, where necessary, appropriate signage and information, especiallyinside and outside of the station, should be put in place to pointpedestrians towards the location of alternative modes of travel.Arrangements should be made for those bus routes terminating at

26

Oxford Circus which use Hanover Square, and provision should bemade for a taxi rank.

6.4 The completed development should be serviced from Tenterden Street.Traffic management measures must also take into account the need forservice vehicles to continue to reach other properties on TenterdenStreet. With regard to servicing, servicing and delivery facilities need tobe in accordance with Council policy as set out in Policy TRANS 20.

6.5 Consideration must be given as to how best to reinstate the highwayaround Hanover Square following completion of the building work at 18and 19 Hanover Square. Any plans must be formulated followingconsultation between the City Council and the promoters anddevelopers of Crossrail.

7. Other Standards and Controls

7.1 Compliance with all other relevant standards and controls is requiredand should be discussed with Council officers when an acceptablescheme has been agreed.

Green Buildings, Recycling and Sustainability

7.2 The City Council will expect the developer to take into consideration theenvironmental impact of their development. There is considerablepotential for reducing environmental damage by improving the designof buildings, for example, by reducing carbon dioxide and particulateemissions by the application of cost-effective current technology.

7.3 The developer will be expected to use sustainable developmentchecklists and will be advised to refer to best practice guides publishedby the Building Research Establishment Environmental AssessmentMethod (BREEAM) and the London Research Centre in preparing theplanning application. The BREEAM provides a ‘green buildingcertificate’ and can demonstrate the efficiency of energy use and inmaterials and methods of construction. The City Council supports thedevelopment of environmentally friendly buildings in accordance withPolicy ENV1.

7.4 In addition to this, the City Council has produced SupplementaryPlanning Guidance on ‘Sustainable Buildings’ (2003) in Westminster.The advice contained within this guidance will be a materialconsideration in the consideration of any subsequent planningapplication.

7.5 The City Council encourages the minimisation of waste and re-use andrecycling of waste materials, and will expect appropriate provision to bemade for the storage of materials for recycling as well as for refusecollection (off street and within buildings).


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Code of Construction Practice

7.6 In order to deal with the impact of construction on the amenity ofsurrounding residents and the environment the City Council hasdevised the Code of Construction Practice for developers. The CityCouncil’s Code of Construction Practice is intended to defineenvironmental standards and outline procedures pertaining toconstruction works. It covers the environmental public health andsafety aspects affecting the interests of local residents, businesses, thegeneral public and the surroundings in the vicinity of the proposedconstruction sites. Activities and impacts covered by the Code includesite set-up and servicing arrangements, management of constructiontraffic and highway works, site management, public safety, noise andvibration, hours of working, dust and air pollution, land contamination,waste disposal and protection of water quality and urban ecology.

7.7 The Code is intended to clarify for the developers and their contractorstheir responsibilities and requirements, as well as providing assurancesto residents and others about the standards that they can expect duringconstruction. It will be important to minimise the disruption to localresidents, businesses, traffic and pedestrians in the surrounding area.Developers would therefore be expected to carry out any demolitionand construction work in accordance with the City Council’s Code ofConstruction Practice to ensure any disruption is kept to the minimum.A site specific code of construction practice would be written for eachdevelopment with the primary concept being to protect residentialamenity. The phasing of works would also need to be carefullyconsidered, particularly in respect of the various developments takingplace in the area, and developers would be expected to discuss theirphasing programmes at an early stage. Funding towards the actualcost of using the Council’s Environmental Inspectorate to monitor thework will also be required (Policies ENV 5-6).

7.8 CLRLL have advised that they would have their own code ofconstruction practice which should apply to the non-operationaldevelopment as well as the Crossrail operational works. However, TheCity Council has had experience of the level of control provided throughthe Parliamentary Process when the Jubilee Line Extension wasapproved and found it not all together satisfactory. The City Counciltherefore would prefer CLRLL to use a modified version of its owncode.

Designing out Crime

7.9 Providing for public surveillance and self-policing should be a keyobjective of any development and this is helped by the fact that thecompleted development will directly overlook a public area.Consideration should also be given to lighting, particularly of entrancesand exits, and the provision of CCTV. Interesting and vibrantstreetscapes with active ground floor uses should also encourage

28

vitality after dark and improve pedestrian routes. This would all help tosignificantly reduce crime and anti-social behaviour around theentrances to the ticket hall.

7.10 The development should also be designed to meet the requirements ofthe Secure By Design initiative. Details of the initiative can be found inthe LBC Supplementary Planning Guidance, and more information canbe found on the Home Office website(www.crimereduction.gov.uk/securedesign8) or in the publication “SaferPlaces” (ODPM – March 2004 www.odpm.gov.uk).

8. Planning Benefits

8.1 The City Council expects the developer of the site to conform to theCode of Construction Practice.

8.2 In addition to the other policy requirements set out in this brief, the CityCouncil may seek to use conditions on any grant of planningpermission or may use its powers under Section 106 of the Town andCountry Planning Act (1990) to require the following matters to becovered by planning obligations:

• Highway and footway works, including to deal with the impact ofthe new Crossrail ticket hall

• Environmental improvements, such as Hanover Square Gardens• Public Art,• Community Safety, such as CCTV coverage• Affordable housing provision, as part of any residential

accommodation incorporated into the development.

8.3 Reference should be made to the Council’s draft supplementaryplanning guidance note on planning obligations (2003) and policySTRA 7 of the UDP.


29

9. Contacts

Department of Planning and City DevelopmentGraham King Strategic and CLRLL Bill issues 020 7641 2749Mark Trevethan Policy, UDP and planning brief issues 020 7641 6063David Horkan Planning Applications, Land use and 020 7641 2521

Development Control John Wilman Conservation and Design issues 020 7641 2561Brent Turton Construction Management 020 7641 2581

Department of Environment and LeisureDon Murchie Transport Policy issues 020 7641 2517Andrew Grimm Refuse planning 020 7641 7962Roger Neville Access Officer 020 7641 2688Paul Akers Trees 020 7641 6096Colin Buttery Gardens 020 7641 2693

Further InformationDetails of relevant Supplementary Planning Guidance and further information canalso be obtained from the City of Westminster’s website - www.westminster.gov.uk(Click on planning and licensing for further information on the Unitary DevelopmentPlan and Development Planning Services)

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Appendix 1 – C

ross London Rail Links Ltd’s proposals for construction activity

and completed w

orks – Bond Street Station

Documents

Crossrail: Bond St Station – Eastern Ticket Hall 18-19 ... · out the City Council’s planning policies, guidelines and constraints with regard to the future redevelopment of 18-19