W19P325

Stage 2

Earl’s Cour t an d West Kens in gton Oppor tunity Area

Group 9 Yiqin Du Simon Wasser Dehi Shetty

Contents 1

2

Introduction

Vison and Objectives

Policy Context

4

Vision

11

Site Context

5

Objectives

12

Evaluation of SPD

7

Concept Diagram

13

Challenges, Potential and Constraints

Indicative Masterplan

9

14

3

Themes – Policies and Tools

4

Indicative Masterplan 17 Housing and Community

18

HC1.1

19

HC1.2

21

HC1.3

23

Cultrual Legecy and Economic Vitality CE2.1

26

CE2.2

28

Connectivity

6

Conclusion Conclusion

45

Reflection

47

Reference

49

25

30

C3.1

31

C3.2

33

5

Strategic Sites

Phasing, Funding and Assessment

Identifying Sites

36

Phasing

40

Cultural Lung

37

Funding

42

Linear Park

38

Factors for assessment 43

1

1 Introduc tion Methodology Policy Context Site Analysis Evaluation of SPD Challenges, Potential and Constraints

2

Introd u c t io n Earl’s Court and West Kensington Opportunity Area is one of the largest on-going developments

REVIEW AND ANALYSIS OF THE CONTEXT

Meth od ology

in London. The 37 hectare site spans the border of Kensington & Chelsea and Hammersmith & Fulham. The site is most famous for the Earl’s Court Exhibition Centres which historically provided the largest exhibition and event space in the country. Since its closure and demolition in 2014, the local area has been impacted by a loss of vitality, employment and retail spend. Adding to this are the politically sensitive social housing estates in the west of the site – Gibbs Greeen and West Kensington – which were due to be demolished. This plan faced significant local opposition during an ineffective consultation process and was abandoned in 2019.

This report provides a new vision for Earl’s Court & West Kensington and a new SPD for the area.

It also provides a summary of the joint Supplementary Planning Document (SPD 2012) for Earl’s Court and West Kensington Opportunity area. The first chapter will provide an area analysis and evaluation of the SPD. It will outline which planning tools were successful before exploring the shortcomings of the document, thus framing chapter 2 which will provide a new vision for the site.

This vision will draw from certain proposals put forward by local community campaign groups

These policies will be evaluated in terms of 5 criteria: 1. Do they conform to higher level policy?

2. Are they coherent with other strategies?

THEMES

before outlining our own masterplan, objectives and policies for the redevelopment site.

3. How successful were precedent case studies in reality?

4. How relevant are case studies to this site?

Policy Tools

5. How deliverable are they in light of political context?

vides an overview of indicators for evaluating the success of policy implemetation.

Chapter 5 concludes the report and evaluates the overall effectiveness of the proposals. Space is provided for reflection on our group working experience.

TOOLS

Chapter 4 outlines the phasing, consultation and funding of the vision and proposals. It also pro-

(Formal)

Guidance

Incentive

Development Brief

Case Study

Control

And (Informal)

and public consultation......

Design Code

3

Policy Co n tex t Lo c a l P l a n a n d T h e Lo d o n P l an The SPD conforms closely with the two local authorities core strategies as well as the Lon-

This diagram outlines where the SPD sits in relation to higher level strategy:

don Plan, however in task 1 we found these higher level policies to be too vague, therefore risking a development which is not appropriate for this site. For example, the London Plan’s emphasis on volume housing building has heavilty informed this SPD, however this is arguably in contradiction which a need to deliver a significant replacement for the Earl’s Court exhibition centres which fundamentally defined the social and economic identity of the local area for generations.

This diagram explains the methodology and timeline of the SPD:

4

Site Co n tex t SWOT

Strength

Weakness

• A mix of transport infrastructure

• Severance caused by railway • Poor west-eastnorth-south connectivity

• The key role of A4 in maintaining the performance of strategic highway network

• Poor quality pedestrian footway

• Integrated network of sewers traversethe OA

• Underground lines serving are some of the most congestedin London

• Green spaceaccess forall

• Main roads impacts on the easeand attractiveness of pedestrian and cyclist movement

• Street hierarchy to encourage walking and cycling

• Limited spare capacityof parking

• Housing mix to include socially affordable housing and intermediate housing

• Shortage of waste management infrastructure

• Enhance existing businesses andcreatejob opportunities

• Air, noise pollution and vibrant

• Existing town centres for retail such as Fulham town centre provide ‘comparative retail

• Fragmented open greenspace

offer’as well as everyday retail offer

• Affordable housing is not assured • Poor consultation • The closureand demolition of the exhibition centres 5

S ite Co n tex t SWOT

Opportunity

Threat

• Reopening the pedestrian tunnel under the Warwick Road

• Unclear funding source for transport facilities

• Supplying energy efficiently

• The growth of the population

• Renewable energy

• The impacts of ongoing construction, demolition and excavation

• New energy centre

• Gentrification

• Centralisedwastemanagement facility

• Low skilled labors have less access

• WasteManagement Plan and Ecological Management Plan and measures listed in the SPD

• Local businesses might get wiped out

• Introduce green corridors and less fragmented green spaces

• Losing its status for being a cultural hub

• Job opportunity for all levels of skill andnew cultural hub

• Not providing a major new exhibition space with high annual footfall will affected the

• The provision of a major new cultural venue and exhibition spaces as well new housing

long termvibrancyofthe areaand thesustainabilityoflocalbusinesses.

will benefit existing businesses in the area.

6

Evalua t io n o f t h e O ri g i na l S PD W h a t wa s e f fe c ti ve an d what n e e d s to b e i m p rove d ?

This section provides an overview analysis of the Supplementary Planning document for Earl’s Court. It is a significant document which provides a thorough outline of the higher level policies which underpin the opportunity area framework. This analysis focuses on the different strategies of the SPD.

Positive Elements a. Significant attention to pre-

a. Relatively specific clear

Significant

attention

Relatively clear control tool

Relatively effective tool in

serve public space, green space

intention on housing de-

on the uplift of com-

helping meet the objectives

delivering objectives

and conservation areas

livering

redevelop-

mercial use to promote

by suggesting the allocation

b. Poor connectivity between the

ment of the estates to

local business and al-

of retail along the periph-

two boroughs is addressed and

reach

locating office spaces

ery of the OA to act as active

new routes are suggested for im-

standards

for creating jobs

frontage and make the area

proving the connectivity. Eg :

b. Attention to disabled

Decking of West London line sig-

and aged housing accom-

nificantly contributes to this

modation

Urban Form

and

energy

efficiency

Housing

safe and pedestrian friendly.

Employment

Retail

Culture

What to improve Some tools are too prescriptive.

a. The residents of the two es-

a. Improvements suggested to uplift the

a. The residents of the two es-

To maintain the cultural

Whilst creating a tailored made ur-

tates to be consulted for further

existing retail to ensure gentrification

tates to be consulted for further

identity of the OA, a hub

ban realm, much attention is given

improvement of the deprived es-

does not occur and local businessmen

improvement of the deprived es-

could be designed to meet

to the character of the built environ-

tates and further action to be sort

don’t lose out on business

tates and further action to be sort

both the cultural identity

ment and not to the social aspect/

in accordance

b. New retail to be specifically target-

in accordance

and job requirement

sentiment of the opportunity area

b. Allocation of affordable hous-

ed in the areas which the OA or the two

b. Allocation of affordable hous-

which would be required for a suc-

ing needs to be tightened up to

boroughs lack, to avoid negative effects

ing needs to be tightened up to

cessful implementation of an SPD

ensure social sustainability is met

on the existing ones

ensure social sustainability is met

7

Evalua t io n o f t h e O ri g i na l S PD W h a t wa s e f fe c ti ve an d what n e e d s to b e i m p rove d ?

Positive Elements Promotion of social inclusion and

Specific measures listed

Includes several con-

Shows attention to mitigate

community cohesion

on improving connectivity

trol and requirement

and minimize the impacts

Clear methodology is given to

and promoting sustainable

tools which ensure a

of pollution on wildlife via

ensure the community facilities

transport

good performance of

ecology reports.

are provided

Social & Community

the policies

Transport

Energy

Environment

What to improve All aspects of the society to be ca-

Taking forward the drafted poli-

Objectives set for reduction in energy

Policies cover a wide range of

tered to and ensure social, economic

cies, the area can target to reduce

consumption can be improved by edu-

environmental concerns, but in-

and cultural integration within and

its carbon footprint by encourag-

cating the local population, efficient &

dicators and regular checks are

beyond the OA

ing cycling and walking as well as

stringent waste management, zero to

required to ensure necessary

introducing new and substantial

landfill, use of solar panels and rainwa-

measures are being taken to ad-

green spaces with native trees

ter harvesting system

dress these.

8

C hallen g es, Po tent i a l a n d Co ns t ra i nt s Key Challenges

Potential

Constraints

1. Ensuring affordable housing is provided with a

1. The urban grain drafted by the SPD is set on a clear

1.Delivery of accessible and affordable housing.

well-balanced tenure mix

intent of connecting the two boroughs, which can be

2. Area allocated for the cultural centre.

2. Delivering a significant cultural hub, carrying for-

carried forward into the new vision. Also, a high street

3. Poor consultation leading to a wrong brief

ward the legacy of Earl’s court

acting as a green corridor connecting the two boroughs

4. Employment sector caters mostly to office spaces

3. Catering to the social and community needs of the

could be envisaged

two boroughs

2. Mix tenure housing to ensure social sustainability is

4. Providing jobs for different levels of skill

achieved

5. Targeting a sustainable development meeting all

3. Creating a new and significant cultural hub for the

pillars of sustainability

whole of London, also creating jobs for multiple skill levels.

4. A community & health center to meet the needs of the opportunity area based on section 106 5. Creating a vibrant retail & commercial front along North End Road & West Cromwell road to enhance the derelict edges of the opportunity area 6. Street network to enhance walking and cycling.

9

2 Vision an d Objec tives Vision Objectives Concept Diagram Indicative Masterplan

10

Vision

“Delivering a new cultural quarter for West London, building on the legacy of Earl’s Court and creating a vibrant new neighbourhood.”

Desired Outcomes: Earl’s Court will become a

neighbourhood,

new green residential

delivering

carbon-neutral,

en-

ergy efficient homes and district-wide sustainable energy production facilities. The community will be proud this

Green Sustainable Housing and Community

mixed-tenure development having been closely involved in its design and vision.

Connectivity

Cultural Legacy and Economic Vatality

Desired Outcomes: Earl’s Court will be well connected as a single, unified neighbourhood

Desired Outcomes: Earl’s Court will be a new cultural destination, with a major new

with permeable and direct links between the boroughs thanks to the decking of

exhibition centre for West London, providing floorspace for large events and

the railway line. This will be a car-free neighbourhood and residential streets

creating hundreds of new jobs for local workers. The exhibition centre will be

will have filtered permeabilty, creating priority for walking and cycling along

the greenest in the UK, build with carbon-neutral materials and designed to be

green corridors.

highly energy efficient. This significant development will host a range of cultural venues including a new music concert hall and arthouse cinema. This will be balanced with retail and commercial space as well as affordable start-up and creative studio space to widen access to the creative industries.

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O bjec t ives Objectives

Housing & Community - Deliver a new sustainable residential neighbourhood - Ensure inclusivity for all ages and classes

HOUSING & COMMUNITY

Cultrual Legacy & Economic Vitality - Deliver a major new cultural and exhibition centre - Deliver new affordable start-up and artist studio space

VISION

OBJECTIVE

CULTRUAL LEGACY & ECONOMIC VITALITY

Connectivity - Deliver decking across railway line to address severance and create more land for development - Creating inclusive streets for walking and cycling

CONNECTIVITY

12

Con cep t D ia g ram

Keys -A central cultural lung and housing sprawled on either side of it -A high street cutting across the cultural lung to connect the two boroughs to create a vibrant environment -More refined urban grain with enhanced street network -Active retail and commercial front -Decking over West London line to create a linear park

13

In d icative M as terp l a n

14

Sustainable Housing and Green Space

15

3 Th em es– Policies an d Tools Masterplan Housing and Community Cultrual Legacy and Economic Vatality Connectivity

16

In dicat ive M a s terp l a n

17

Housin g an d Co mm uni ty

Objective: Deliver a new sustainable residential neighbourhood Ensure inclusivity for all ages and classes

Policy: HC1.1: create affordable and high density housing HC1.2: Create carbon-neutral, energy efficient homes HC1.3: Ensure meaningful consultation and deliver inclusive social infrastructure

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HC 1.1: Create affo rd a b l e a n d h i g h d e n si ty h o usi n g Context

Case Study - Woodbery Down Regeneration

This policy responds to the GLA’s agenda around increase housebuilding and density.

It also responds to local community groups such as GIbbs Green tenants association who called for high levels of affordable housing. This demand has been balanced with financial viabilty, proposing 40% affordable housing, which is still higher than the GLA’s policy of 35%.

Desired Outcome To create affordable and high density residential housing, providing a range of tenures, including 30% privately owned market-value units, 30% shared ownership, 80% of market-value, 35% social rent (managed by a housing association; rent valued at 33% of individual’s income.), 5% assisted housing.

There will be a range of units available, from studio flats up to 3 bedroom family apartments. These will be complemented by assited housing units for elderly and vulnerable residents.

Housing will be designed and developed through meaningful consultation and social units will be allocated through a means assessment in partnership between the local authority and the housing association.

Housing will have a density of 300 dwellings per hectare in line with the GLA’s (2019) policy 3.4 on optimising housing potential in the draft new London Plan.

Policy Tools

This policy combines formal guidance, incentive and control tools as well as informal tools such as design guides to influence development. A development brief will be expected from local authority which sets out the desired outcome of this policy prior to submission of planning application.

An urban design framework tool will also be proposed to ensure housing meets the required density standards and suitable layout.

This will be complemented by guidance policy from the GLA’s new London Plan around affordable housing provision and density.

Formal tools Guidance • GLA Policy H7 Affordable housing tenure • GLA policy 3.4 Optimising Housing Potential • Earl’s Court Urban Design framework Incentive – LA support to developer in establishing partnership with housing association. GLA partfunding for affordable tenure provision.

Control – Development brief, planning consent Formal tools Guidance

Informal tools Negotiation between local authority and developer in achieving desirable outcomes

The Woodbery Down Regeneration-Desired objectives London Woodberry Down is a 30 year RICS award-winning regeneration project in North London. The existing 42 residential blocks had fallen into disrepair and required redevelopment. So far 1,479 new homes (of which 736 are affordable) and 6.61 acres of public green space have been delivered. The site includes two schools, retail space and a community centre. The “tenure split” for a revised masterplan approved in 2014 was for 43 per cent of the project’s homes over forthcoming phases to be “affordable”, with 47 per cent of those to be let at social rent levels and 53 per cent for intermediate shared ownership.

The Woodbery Down Regeneration-Tools used It required a development brief tool with the expectation of a partnership between the council, commercial developer Berkeley Homes, the Notting Hill Genesis housing association, the Manor House Development Trust and the resident-led Woodberry Down Community Organisation.

The local authority also developed an urban design framework which ensured the appropriate levels of density, tenure mix and layout was achieved.

The two tools together were effective in meeting the desired outcomes due to strong partnership working with shared goals and good consultation methods, guided by clear guidance. (see Berkeley Homes Case Study, 2018)

CABE Design report – Better Neighbourhoods: Making higher densities work Case study: Woodberry Down scheme

Informal tools CABE report: What makes an eco-town?

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HC 1.1: C reate affo rd a b l e a n d h i g h d e n si ty h o usi n g Transferability

Overall chance of success: 76%

The scale of the Woodberry Down development is similar to Earl’s Court (5,000 homes) making this caser study very relevant. The Woodberry Down scheme also involved rehousing residents on site without any displacement and was able to secure a high level of affordable housing. The use of a development brief and urban design framework was effective and is highly applicable to Earl’s Court. One challenge in Earl’s Court will be whether a partnership of this strength can be achieved, considering a previous breakdown in communication between the join local authorities.

This policy can be successfully implemented only through the delivery of a development brief, urban design framework and a meaningful consultation process which ensures that the voice of the residents is heard. and the planning authorities take these into consideration when setting out a masterplan. Assurance from the council, developer and housing association that a just tenure mix will be delivered is key to the success of this policy.

Strong partnership working a shared vision will help.

Limitation The developer may argue that providing high levels of shared ownership and social rent is not financially viable, however the Woodberry Down case study proves this is possible. The Woodberry Down case study provides a good example of a sustainable neighbourhood in accounting for all pillars of sustainability. The extent to which an urban design framework and criteria for social housing is adhered to is subject to developer negotiations which historically have been problematic for the influence of the original SPD.

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HC 1. 2 : Create c arbo n - n e u t ra l , e n e rg y e f f i c i e nt h o m e s Case Study - BedZED

Context This was a clear policy in the original SPD (ENE1) as well as an important request from local community groups. It has been deemed essential to bring this policy forward into this report as it unpins the objective of designing an environmentally sustainable neighbourhood.

Desired Outcome

Construction materials will be sourced locally where possible and residential units will be well insulated combined with storage heaters and low energy light fittings in line with BREEM standards.

The development will have a decentralised district heating system powered by waste from the housing development. This improves energy efficiency by reducing need Formal tools and reducing the distance beInformal tools to grid power Guidance Negotiation between local authority and tween energy source and use.

• on-site GLA Policy H7 Affordable housing tenure developer in achieving desirable outcomes An grey water treatment system • GLA policy 3.4 Optimising Housing Potential will manage and recycle used water effi• Earl’s Court Urban Design framework ciently.

Incentive – LA support to developer in establishing CABE Design report – Better Neighbourhoods: Policy Tools partnership with housing association. GLA partMaking higher densities work funding for affordable tenure provision.

Detailed supplementary guidance around best practice energy-efficiency standards will Control – Development brief, planning consent Case study: Woodberry Down scheme be expected to be provided by developers in an energy assessment.

Formal tools Guidance • GLA Policy 5.2 Energy Planning Incentive – GLA advice and part-funding for district heating-system, forming case study for London Control – provision of energy assessment by developer to receive planning consent

Informal tools CABE report: What makes an eco-town?

BREEM energy standards Case study: Bioregnional design standards for BedZED

Formal tools Guidance • Social infrastructure design code in urban design framework Incentive – LA support to developer in establishing partnership with Better Health who will offer 20% funding Control – Consultation strategy provided by developer

Informal tools Glasshouse engagement resource

Case study: Woodberry Down

Case study: Packington Estate

BedZED -Desired objectives BedZED is the UK’s first eco-community, in South London. Environmental measures included reducing energy demand, storage heaters, cavity wall insulation, south facing unit design, energy efficient light fittings, solar power systems on site, waste water recycling system on site and a biomass boiler system. Construction materials were from recycled or sustainable sources.

Evaluation by Jan-Carlos (2010) found that although water and energy consumption by residents was lower than national average, the scheme experienced challenges with its biomass boiler and has been powered by a back-up gas boiler since 2005.

BedZED -Tools used The local authority used the incentive of selling land to the developer at below market rate to encourage the developer to design and build innovative energy efficient homes.

The local authority’s informal tool of advocacy and support for a close partnership between Peabody, environmental consultants Bioregional and architects Zedfactory ensured that the design had environmental integrity. This reduced the scope for design drift when delivered by the developer.

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HC 1. 2 : Create c arbo n - n e u t ra l , e n e rg y e f f i c i e nt h o m e s Transferability

Overall chance of success: 70%

The environmental design principles of this case study are transferable to Earl’s Court, however the scale of both developments are very different, making a direct comparison more difficult. The incentive tool used (selling land at a subsidised rate) is problematic for the Earl’s Court opportunity area as the majority of the land is owned by Delancey and APG.

Overall this policy has a reasonable chance of success as long the developer’s energy assessment is satisfactory and they can be trusted to realise the outcomes expected. Close informal support and guidance from the local authority could come in the form of a funded environmental advisor such as Bioregional, thus incentivising the developer to make sound decisions.

Limitation The scale of the Earl’s Court development requires a large scale heating system which requires strategic planning. Strong guidance, incentive and control tools are required to ensure developers meet the expecatation considering set-up costs may be higher than conventional alternatives. A business case for sustainable energy provision should be explored by the LPA. Sourcing enough recycled construction material may be difficult for a scheme of this size.

22

partnership with housing association. GLA partfunding for affordable tenure provision.

Control – Development brief, planning consent

Making higher densities work Case study: Woodberry Down scheme

HC 1. 3 : E ns ure s o cia l e q u i ty a n d c rea te a n i n cl usi ve co m m uni ty Formal tools Context The consultation informing the original SPD was conducted poor and led to a breakdown of trust between the local authorities and the community about the displacement of people and the amount of new social housing proposed. This policy aims to mitigate against the risk of further consultation being conducted poorly.

Desired Outcome Developers and housing association partners will meaningfully involve existing residents of Gibbs Green estate and the wide community in a process of consultation which ensure residents are listening and decisions are made which balance the various stakeholder interests.

Social infrastructure will be built at the earliest possible period of phasing (whilst remaining viable in terms of meeting appropriate demand). Social infrastructure will be inclusive and affordable, providing a range of services to meet the health and leisure needs of new residents as well as the wider community.

Taking the SPD forward, a 16,500 sqm educational facility and 21,750 sqm health facility will be allocated bearing all necessary space standards and ensure they are accessible to people of all backgrounds and ages.

An area of 6,740 sqm has been dedicated for community facilities, these are provided to meet the needs of both the boroughs, engage the local population and enhance local culture and spirit.

Creation of a high street that connects the two boroughs at the node of the cultural centre will help integrate the two boroughs and provide social value through local retailers.

Informal tools Guidance CABE report: What makes an eco-town?

Policy Tools • GLA Policy 5.2 Energy Planning The key control tool will be the expectation that developer provide a consultation strategy Incentive – GLA advice and part-funding for BREEM energy standards as part of their planning applications. district heating-system, forming case study for Design code guidance in an urban design framework will be given to ensure the appropriLondon ate scale of social infrastructure development.

Control – provision of energy assessment by Case study: Bioregnional design standards for BedZED Developers will be incentivised to build health facilities as the local authority will establish developer to receive planning consent a partnership with Better Health who will manage the facility and part-fund the development.

Formal tools Guidance • Social infrastructure design code in urban design framework Incentive – LA support to developer in establishing partnership with Better Health who will offer 20% funding Control – Consultation strategy provided by developer Planning consent subject to alignment with policy and guidance

Informal tools Glasshouse engagement resource

Case study: Woodberry Down

Case study: Packington Estate

Case Study - Packington Estate Considered to be a good example of meaningful engagement in estate regeneration. Chair of the Packington Square resident board states: ‘Consultation from the early stages of the regeneration process, not just with residents but with community members from the surrounding area, was vital in establishing a productive working relationship between the housing provider and the local community.’

Hyde Housing Group – Packington Estate cases study

Packington Estate -Desired objectives Establishment of a resident steering group which has clear accountability and responsibility.

Involve and engage residents early in the process ‘Going-to’ the community and engaging harder to reach groups, rather than expecting residents to come to evening meetings.

Packington Estate -Tools used Informal engagement tool of creating a steering group was critical in building buy-in improving communication with residents, complementing any wider formal consultation processes 23

HC 1. 3 : E ns ure s o cia l e q u i ty a n d c rea te a n i n cl usi ve co m m uni ty Transferability

Overall chance of success: 75%

This engagement tool is highly transferable to Earl’s and should be considered in the first instance.

In order to be successful in building support for the scheme, the developer should instruct an engagement consultant to draft an engagement strategy and deliver the strategy. Well facilitated workshops should be able to resolve conflict and build trust in local residents that new housing will be provided to them. The case studies above should be used when communicating with residents.

Limitation Local authorities and developers are often afraid of public consultation as they do not know how to manage conflicting interest.

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Cul trual Leg a cy a n d Eco n o m i c V i t a l i ty

Objective: Deliver a major new cultural and exhibition centre Deliver new affordable start-up and artist studio space

Policy: CE2.1: Deliver a major new cultural and exhibition centre CE2.2: Deliver new affordable start-up and artist studio space

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CE2 .1: De live r a ma j o r n ew c u l t u ra l a n d exhi b i ti o n ce ntre Context The previous SPD outlined a cultural venue which was too insignificant in scale to realise the legacy of the old Earl’s Court exhibition centres. The SPD proposed a cultural venue with a floorspace of 10,000m2, which consequently translated into a scheme gaining planning permission with only 700m2. To avoid the risks of discretionary guidance, control tools have been proposed. This new policy attempts to improve the policy and tools to ensure the right kind of development is achieved.

Desired Outcome A new multi-purpose cultural venue and public spaces will be provided via a national design competition. The venue will include a 20,000 sq.m. exhibition space, a 2,000 sq.m. art gallery, a 1,700 seat theatre, along with 100 affordable artist studios, and a 15,000 sq.m. capacity concert arena.

The building with meeting BREEM energy standards and will be constructed with low carbon materials. It is beyond the capacity of this report to provide a detailed case study analysis of a ‘green’ exhibition venue, but suffice it for readers to refer to the BedZED case study to understand the expectations for sustainable building material and operations.

Taking the SPD forward, a 16,500 sqm educational facility and 21,750 sqm health facility will be allocated bearing all necessary space standards and ensure they are accessible to people of all backgrounds and ages.

An area of 6,740 sqm has been dedicated for community facilities, these are provided to meet the needs of both the boroughs, engage the local population and enhance local culture and spirit.

Creation of a high street that connects the two boroughs at the node of the cultural centre will help integrate the two boroughs and provide social value through local retailers.

Policy Tools Inspired by the Lowry Centre case study below, a national design competition will hosted to achieve a high quality designed building which is attractive, environmentally sustainable and functional.

A development brief will be expected from local authority as well as a cultural strategy upon submission of planning application. A developer which specialises in the delivery of large public venues will be chosen and this developer will not necessarily be the same as those who deliver residential units on the scheme.

An environmental strategy will also be expected from the developer which sets out the environmental aims and outcomes of the design.

A partnership with Arts Council and relevant funding stream will be established to support the developer.

Formal tools Guidance • GLA Policy 5.2 energy planning Incentive – LA support to developer in establishing partnership with Arts Council including part-funding Control – Development brief, design competition, cultural strategy and environmental strategy.

Case Study - The Lowry Formal tools Guidance • GLA Policy E3 Affordable workspace Control - Development brief, expectation of flexible workspace strategy

Informal tools Case study: Lowry Centre We Made That informal creative engagement around new cultural venue to build support

Informal tools Case study: Barbican Innovation Warehouse GLA (2015) Creating Open Workspaces guide

The Lowry -Desired objectives

The Lowry -Tools used

The Lowry Centre in Salford Quay combines a wide range of functions which will build on the legacy of Earl’s Court cultural history, providing space for a gallery, artists studios, theatres and concerts. It has 1.15 million visitors a year (this is Manchester, not London). It is a registered charity and they offer thousands of free creative workshops to young people each year. They also act as an incubator for emerging artists.

Salford’s strategy for the Lowry involved a design competition in 1990 which was successful finding an architect who could realise the aims of designing a landmark cultural venue, which similar cultural and economic aspirations to the Guggenheim, Bilbao.

The Lowry also forms part of Salford Quay’s Destination Management plan (on-going culture and tourism strategy) which illustrates how cultural venues such as this are integral to economic prosperity.

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CE2 .1: D e live r a ma j o r n ew c u l t u ra l a n d exhi b i ti o n ce ntre Transferability

Overall chance of success: 66%

This case study is highly transferable to Earl’s Court and illustrates not only an example of design which provides multi-functional space, but also highlights effective planning strategies which improve design standards and incorporate venues as part of wider economic strategies for an area.

Ensuring developers provide a cultural strategy which also meets the floorspace requirements outlined above will be key to success. A design competition is a proven tools which can successful in improving design and should be implemented.

Limitation Operating a multi-functional venue requires strong partnership work and a potentially wide range of service providers to realise the aims of the scheme. Such providers should be contractually committed preferably before construction, however this is not easy to achieve.

The Lowry case study provides cultural facilities but does not provide large and extensive exhibition space which renders the case study limited. The Excel centre provides a good case study on this element.

Arts Council have limited capital funding streams at present. Big Lotery is another option.

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CE2 . 2: D e live r n ew a f fo rd a b l e st a r t- u p a n d ar ti st stud i o spa ce Context

Case Study - Barbican Innovation Warehouse

This policy improves on the flexibility of the SPD’s policy and the below guidelines provide a level of detail not found in the SPD. The delivery of affordable studio space is critical in supporting the next generation of creative industries.

Desired Outcome This policy proposes delivery of 50 affordable artist studios, totalling 2000m2 floorspace. This will be combined with co-working and start-up space totalling 2000m2 floorspace in the same building.

London is one of the most expensive cities in the world to rent co-working and artist studio space. This site provides a huge opportunity to provide a significant amount of affordable workspace which will act as an incubator for the next generation of Formal toolsand cre-atives, building on the Informal tools businesses Guidance Case study: Lowry Centre legacy of Earl’s Court.

• GLA Policy 5.2 energy planning Incentive – LA support to developer in We Made That informal creative engagement Policy Tools establishing partnership with Arts Council around new cultural venue to build support Development brief which will outline the key the criteria above. including part-funding AControl flexible workspace brief, strategy includes partnership with a property manager who – Development designwhich competition, has expertise in providing workspace but also mentoring and networking syscultural strategynot andonly environmental strategy. tems to support SMEs. Formal tools Guidance • GLA Policy E3 Affordable workspace Control - Development brief, expectation of flexible workspace strategy

Informal tools Case study: Barbican Innovation Warehouse GLA (2015) Creating Open Workspaces guide

Barbican Innovation Warehouse -Desired objectives The Barbican Innovation Warehouse is an example of a coworking space in London which offers flexible space for a range of small businesses and start ups.

Provides 900m2 floorspace for small and medium sized companies. Hot desking space can be hired for as little as £150 per month which is significantly lower than the London average of £600pm. They provide a training and mentoring programme for new tech companies and have larger private office space which can be hired as companies grow. It working at capacity which demonstrates a consistent demand for space such as this.

Barbican Innovation Warehouse -Tools used The City of London has 17,980 businesses in 8.7 million sq m of office space. The City of London planning authority have a clear business strategy in their local plan. Guidance policy O1 in the local plan encourages provision for flexible workspaces such as this Clerkenwell case study, which are prepared to meeting changing future needs and support small companies.

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CE2 . 2: D e live r n ew a f fo rd a b l e st a r t- u p a n d ar ti st stud i o spa ce Transferability

Overall chance of success: 72%

This case study is highly transferable to the office and retail units which are located parallel to the A3218, acting as a buffer. It was not compulsory for this company to create a coworking space in this location. In Earl’s Court, this particular type of office space (coworking/start up incubator) will be required as part of a development brief, alongside a flexible workspace

A development brief and flexible workspace strategy would help in achieving the desirede outcomes, however these expectations may impinge on how many developers and coworking management companies come forward with applications. Equally, flexible working is a growing trend and may well become the new normal in the years to come.

Limitation This policy must be complemented by other office space policies which can accommodate larger companies, however the purpose of this policy was to highlight a shortfall in the original SPD. It is beyond the capacity of this report to provide a detailed analysis of an artist workspace but realisitcally a separate policy is required.

The extent to which a coworking space can be subsidised for SMEs depends on the business model of the property owner and management of the space.

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Conn ec t iv ity

Objective: Deliver decking across railway line to address severance and create more land for development Creating inclusive streets for walking and cycling

Policy: C3.1: Deliver decking across railway line to address severance and create new linear park C3.2: Creating inclusive streets for walking and cycling

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C3.1: De live r de cki n g a c ro ss ra i l way l i n e to a d d re ss seve ran ce an d create n ew l i n ear park Case Study - Federation Square, Melbourne Context The railway line in the opportunity area currently creates significant severance.

The original SPD proposes to deck this area and this current SPD supports the policy by bringing it forward.

Desired Outcome 54,000 sqm of decked surfacing will be delivered providing new open greensace for recreation and allotments. The policy will also greatly improve connectivity between the two boroughs.

Policy Tools

Federation Square, Melbourne -Desired objectives

A development plan will be developed by the local authortiy which will outline the specification for the decking and park.

Federation Square in Melbourne is a popular cultural destination and square built on top of a railway line.

Significant new public space created which addressed severanace and created a space for social gathering.

Formal tools Informal tools Control CABE Openspace Guidance • Joint local authority development plan Case study: Federation Square

Formal tools Control • Planning consent subject to appropriate masterplan

Federation Square, Melbourne -Tools used A design competition was used to instruct an architect and improve design standards.

A development plan was written by the city council to ensure

Informal tools Sustrans Design manual (2014) Case study: Superblocks, Barcelona

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C3.1: D e live r de cki n g a c ro ss ra i l way l i n e to a d d re ss seve ran ce an d create n ew l i n ear park Transferability

Overall chance of success: 82%

This cases study is highly transferable due to the scale of the project. The use of a development plan was effective outlining the detailed specification for the scheme and this should be adopted in Earl’s Court. This case study tells us a lot about the decking process but less about creating a successful linear park.

Overall this should be a successful and deliverable scheme as long as local authorities, land owners, developers and contractors can realise accurate cost estimates of the decking process and have enough funding to realise the plan. A development plan will aid in outlining a detailed plan with developers can follow.

Limitation One of the key lessons learned from Federation Square was around inadequate cost estimations of the decking process. The final cost of the scheme was $467 million which was 4 times the original estimate. This highlights not only the need for careful planning, but also the risk that the decking process will be considered unviable to developers, especially considering the land use will be a park rather than buildings.

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C3. 2: Creat in g in clu si ve st re e t s fo r wa l ki n g an d cycl i n g Case Study - Superblocks, Barcelona

Context The previous SPD provided guidance around street designed underpinned by Transport for London’s Healthy Streets principles, however it did not provide a design code which would significantly address traffic dominance on residential streets.

The authors also recently conducted a site visit to Example, Barcelona where the Superblock model is being trialled. This is an approach to street layout which reduces non-local rat running in residential neighbourhoods by forcing drivers in the wider network to use the main arterial roads which can accommodate higher levels of traffic.

Desired Outcome

Superblocks, Barcelona -Desired objectives

Quiet, traffic free residential streets which preventing rat running traffic with the installation of modal filters and 5mph homezones. Restricting vehicle movement to main roads ensures that residential streets are safe for people of all ages to move, socialise and play.

Residential blocks will be car free, apart from disabled drivers The cultural venue will be car free. Visitors must take public transport or take active modes to travel there.

Formal tools Informal tools Policy Tools Control CABE Openspace Guidance This proposes development of a detailed design code informed by Sustrans Design • SPD Joint local authority development plan Manual and the Barcelona Superblock model. Case study: Federation Square

This strategy creates an opportunity to greatly increase the amount of public space in a scheme. Considering 80% of public space in London is a street, there is huge potential to reclaim some of this space, making streets safer for people to interact in. It also imroves air quality and addresses sound pollution.

Superblocks, Barcelona -Tools used A design code and urban design framework was developed by the city council which was inspired by the woonerfs of Rotterdam. This design code was then implemented in 9 locations across the city.

Developers will be expected to produce a masterplan with a planning application which incorporates these design principles.

Formal tools Control • Planning consent subject to appropriate masterplan

Informal tools Sustrans Design manual (2014) Case study: Superblocks, Barcelona 33

C3. 2: C reat in g in clu si ve st re e t s fo r wa l ki n g an d cycl i n g Transferability

Overall chance of success: 84%

The principle behind the superblock is highly transferable to Earl’s court and the design of low traffic residential streets can be applied (if not identically) to the layout of the residential blocks as shown on the masterplan.

The use of a design code and urban design framework was an effective tool to ensure that design was underpinned by specific principles and delivered the desired outcomes of reducing traffic and creating public space.

The effectiveness and success of this policy will depend firstly on a sound design code and secondly on the political will of the local planning authorities in partnership with developers to experiment with a different type of street design.

Limitation The Superblock case study is known to have limited consulation with social housing residents and as a result is highly controversial. The context is different in Earl’s court however as residents will be new the the area.

This type of street design is radical (alongside the car free policy) and may prove difficult to sell to housing developers who will be mindful of existing consumer preferences.

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4 Strategic Sites Cultural Lung Linear Park

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I d ent if y in g S ites

36

Cul tural Lu n g Site Analysis

Desired Outcome

The Cultural district is nestled in the heart of the OA, to emphasize on the significant history of Earl’s court. Spanning from West to East, the cultural district is meant to unite the two boroughs. A high street runs along the spine of the cultural district which will add vibrancy and character to the neighbourhood. Lined by retail shops and cafes, with quick access to exhibition spaces this street will be full of life.

1. Social and Economic integration of the two boroughs 2. Active Street Frontages encouraging active street life 3. Creating job opportunities for skills of many levels 4. Encouraging community gatherings

Case Study-Vancouver Convention Centre Vancouver Convention Centre extension was completed in 2009 and is LEED platinum certified for sustainable construction and architecture. It is the largest green roof in north America with 400,000 plants growing on it. The convention centre also functions as a landmark and hub for civic life.

As for the tools used, the City council created a development plan for the extension scheme which provided guidance on how the scheme should be delivered. This scheme was part funded by federal and provincial government as well as Tourism Canada demonstrating state-led partnership work.

The principle behind the development plan is applicable to Earl’s Court and could be complemented by a cultural strategy created by a prospective developer.

The key difference is that this case study was a state-led development, whereas Earl’s Court is predominantly privately owned, therefore the extent to which the Vancouver convention centre’s sustainable design specification can be replicated is questionable due to differing priorities.

Representative Green Building and Street Scene 37

Lin ear Pa rk Site Analysis

The linear park is located along the Eastern periphery of the site. The land for the park is achieved by decking over the West London line along length of the OA. The decking is necessary to achieve better street network across the OA. Beside greening the area, it also has positive effects on the mental well-being of the local population.

Case Study 1-Tower Hamlets

“Creating ways to overcome shortage of open space” Despite being one of the most densely populate areas, the Borough of Tower-Hamlets recognized the lack of green spaces and with the ever-growing demand for densification, they adopted a 10-year open space strategy (OSS).

The OSS clearly states on the quantity of open space required and upgrade of existing open spaces. Through this initiative recognizing the fragmented green spaces, the strategy also suggested to link the existing green spaces and improve the overall green network.

Case Study 2-Blackburn with Darwin open space strategy

Desired Outcome

1. The park is vital to preserve biodiversity 2. The park can be used for urban allotments.

3. Urban allotments engage and encourage community participation.

4. Helps in carbon sequestration 5. Can be used to enhance environmental awareness

“A new appetite for allotments” A cluster of pressing issues, including obesity, heart disease, food security, food air miles, the recession, climate change and sustainability is pushing allotments up the agenda for local authorities. Allotments became one of the 10 open space types in the authority’s final open space strategy document. Galvanising more thinking and action on allotments at the point of devising the OSS has enabled much more than improvement of specific allotment sites. The clarity of responsibility and the involvement of the forum have brought about a streamlined, inclusive approach to winning further improvements and making certain that the investment is maintained. The targets in Blackburn with Darwen’s OSS include increasing the number of Green Flags from one in 2004/05 to five in 2007/08, which was achieved a year early. Other targets relate to increasing satisfaction in community surveys, number of friends’ groups and number of sites with management plans.

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5 P hasin g, fun din g an d assessm ent Phasing Funding Factors for assessment

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P hasin g

Phase 1

Phase 2

Phase 3

Phase 4

Decking will be of primary importance to integrate the site; hence this will be adapted within the first five years of development. Alongside, 1500 homes with a primary school, nursery and health facilities will be delivered. Also, 10% of retail, commercial and cultural facilities of the overall Masterplan will be targeted.

Delivery of the mixed development with an active retail front along North line road. With completion of decking, better streets can be built, new public realm can be created and 2000 homes will be completed. 70% of the cultural hub will be delivered in this phase. The health and community facilities will be completed as well. West Cromwell road will host a new set of commercial spaces, with 40% delivered.

Another set of 2000 homes will be completed and 40% of the commercial facilities will be delivered in the third phase. Also, the cultural hub will be completed in this phase.

Remainder 15% of the housing and commercial sector will be completed in the last phase

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Phasin g

Policy No

Objective

Time Scale

Housing and Community HC 1.1

create affordable and high density housing

Phase 3

HC 1.2

Create carbon-neutral, energy efficient homes

Phase 3

HC 1.3

Ensure meaningful consultation and deliver inclusive social infrastructure

Phase 3

Cultural Legacy and Economic Vitality CE 2.1

Deliver a major new cultural and exhibition centre

Phase 3

CE 2.2

Deliver new affordable start up and artist studio space

Phase 4

Connectivity C3.1

Decking

Phase 1

C3.2

Creating inclusive streets for walking, cycling and better infrastructure

Phase 2 41

Fun din g

Major Works

Funding

1 Decking

TFL

2 Housing

Multiple Developers

3 Cultural

Funding from Mayor of London and Arts Council

4 Education

S106

5 Community Centre

Council Susidy or Loan

6 Retail

Multiple Developers

7 Commercial

Multiple Developers

8 Health

S106

9 Transport and Connectivity

TFL, Local authority, developers

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Factors for assessment

Housing & Community

- Deliver a new sustainable residential neighbourhood - Ensure inclusivity for all ages and

-Energy efficiency rating of completed new

-Annual visitor numbers

residential units and cultural venue

-Number of jobs created

-Evidence of sustainable material source

-Turnover of cultural centre

-Consultation survey on process of mean-

-Turnover of retail business in scheme

ingful engagement

-Turnover of retail business in surrounding

-Consultation on resident satisfaction with

area

new homes and public space -Percentage of social and affordable units finally provided.

- Deliver a major new cultural and exhibition centre - Deliver new affordable start-up

-Local employment levels -Number of affordable workplaces and artitst studios provided

and artist studio space within the

classes

Connectivity

Economic Vitality

mixed development

-Modal share survey – gauging how people travel to work and school and shops -Parking policy and number of parking spaces finally provided -New roads across railway decking

- Deliver decking across railway line to address severance and create more land for public spaces

-Street design delivered achieving low traffic neighbourhood -Survey on levels of health and well-being

- Creating inclusive streets for walking and cycling

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6 Con clusion

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Con clus io n The Earl’s Court Exhibition Centres have a rich and vibrant history host-

In light of these criteria though, the policies performed relatively well,

ing some of the biggest events in London, from Olympic sports and

with an overall average success rate of 76%.

Crufts to David Bowie concerts and the Brit Awards. Since their demolition in 2014, the original joint Supplementary Planning Document for

Hammersmith and Fulham’s decision to compulsory purchase the Gibbs

this Opportunity Area has failed to realise a vision which truly builds on

Green and West Kensington estates to protect them from demolition is

the legacy of Earl’s Court.

a very complex matter. On the one hand this demonstrated to the local community that they were being listened to and respected. On the oth-

76%

The aim of this report was to propose a new vision and SPD for the site

er hand, these properties are aging quickly and will soon be no longer

which mitigated against some of the shortfalls of the original SPD. We

fit for purpose. Now is the opportunity to fundamentally replace them

Three core objectives are outlined around sustainable housing, cul-

with energy efficient and sustainable homes which will respond to the

ture-led economic vitality and connectivity. 6 policies which aim at re-

urgency of climate change. With a more meaningful and in-depth con-

alising these objectives and delivering leading examples of best practice

sultation process, the local authorities may have built better trust with

in urban design approaches by drawing on successful case studies are

local stakeholders and reassured them that future social housing units

proposed.

will be safeguarded for them in the new development.

These policies were critically evaluated in terms of how well they con-

Likewise, the original SPD’s proposal for a small cultural venue was

form to higher level policy, how coherent they are with other strategies,

vague and inadequate. This is a 37 hectare site which can easily ac-

how successful the precedent examples are in delivering their desired

commodate a much larger exhibition and cultural centre in addition to

outcomes, how relevant these case studies are to this scheme and finally

housing. Indeed this can become a leading piece of sustainable architec-

how deliverable they in the current political climate. This last criterion

ture as local campaign groups would like to see.

is critical to the efficacy of planning policy as it touches on the conflict between the status quo agenda of developers, vs the progressive aims of

This new SPD attempts to rewrite the story of Earl’s Court and learn the

contemporary planning which seeks to design neighbourhoods differ-

lessons of the past. Time will tell the fate of the scheme.

ently. We were not afraid of proposing radical interventions which in our view would deliver the best outcomes for the site. The real-life political deliverability of these interventions remains a challenge.

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46

R eflec t io n The first meeting involved reflecting on the learning from Task 1. This

of ensuring certain outcomes are achieved. However it posed the risk that

was an interesting exercise as not only did we realise how much we had

developers will choose not to submit an application based on the local

learnt about the site and policy making process, but we were proud of the

authorities’ expectations. Nonetheless, we decided to be confident and

report we delivered despite losing two members of our team.

enshrine them as best we could.

In light of our small team size we decided to focus on the most essential

For each objective we proposed two policies which were backed up by

policies necessary for delivering a successful scheme. This allowed us to

precedent case studies from around the world. These provided evidence

still demonstrate a critical evaluation of the policies proposed.

of potential success for the policies, however their relevance to the site

After reflecting on Task 1, we were able to summarise an evaluation of

varied. On top of this, as discussed in the conclusion, their deliverabilty in

the SPD, highlighting what worked and what needed to change. As has

the current political landscape is questionable. The final policies were the

been laboured across both reports, there were two fundamental short-

result of various discussions and iterations around what the most im-

falls of the SPD. The first was the breakdown in consultation around the

portant outcomes should be.

demolition social housing and the Earl’s Court Exhibition centres which

After an interesting exploration into funding and phasing (mitigating

led to major opposition and has slowed down the project. The second is

against land banking which has taken place in this scheme), we de-

the lack of ambition around a new cultural exhibition centre of a scale

veloped some indicators which can be used to measure the success of

large enough to realise a socio-economic impact which could build on

policies. This was important learning as it allowed us to better under-

the legacy of the former venues.

stand the monitoring process and the difference between outputs and

In view of these two dilemmas, we set out to develop our own vision for

outcomes. Outputs in urban planning practice are the policy documents

the scheme and set out three key planning objectives: sustainable hous-

as well as the built product itself. Outcomes describe the actual social,

ing, culture-led economic vitality and connectivity. These formed the

environmental and economic impact of policy. It is critical to evaluate

foundation of our vision: “Delivering a new cultural quarter for West

the outcomes of schemes beyond the construction phase. All too often,

London, building on the legacy of Earl’s Court and creating a vibrant

there is scarce funding allocated to monitoring and this is detrimen-

new neighbourhood”.

tal to learning in the sector. This even applies even to the case studies

After viewing other group’s projects in the module presentation, we dis-

we included in the report. Where data on the outcomes of case studies

cussed the pros and cons of different planning tools in achieving success-

was missing (most of the time), we had to rely on the reputation of the

ful objectives. In light of how the Earl’s Court SPD’s guidance tools did

scheme which is somewhat less verifiable. We propose that this scheme is

not manage to achieve certain outcomes due to its flexibiilty, we decided

carefully monitored over a minimum 10 year period, with funding ring-

that we would safeguard certain policies by establishing them in legally

fenced for independent evaluation.

binding section 106 agreements. At first glance this seems a wise method 47

R eflec t io n Overall it was a pleasure to work together and we each brought our unique skills to the table to create a good report, thus relfecting real life teamwork scenarios. Despite being a small team, we carefully sketched out a report structure and shared the work equally.

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Referen ces Arnstein, S. R., 1969. A Ladder Of Citizen Participation. Journal of the American Institute of Planners , 35(4), pp. 216-224.

Carmona, M., 2017. The formal and informal tools of design governance. Journal of Urban Design, 22(1), pp.1-36.

Greater London Authority, 2016. London Plan. Accessed at:https://www.london.gov.uk/what-we-do/planning/london-plan/current-london-plan LB Hammersmith and Fulham, 2011. Core Strategy. Accessed at: https://www.lbhf.gov.uk/sites/default/files/section_attachments/core_strategy_2011.pdf.

LB Hammersmith and Fulham, 2018. Local Plan. Accessed at: https://www.lbhf.gov.uk/planning/planning-policy/local-plan.

LB Hammersmith and Fulham and LB Kensington and Chelsea, 2012. Earl’s Court and West Kensington Opportunity Area: Joint Supplementary Planning Document. Accessed at: https://www.rbkc.gov.uk/planning-and-building-control/planning-policy/supplementary-planning/ earls-court-and-westkensington LB Hammersmith and Fulham and LB Kensington and Chelsea, 2012. Consultation Summary Report. Accessed at: https://www.rbkc.gov.uk/wamdocs/Consultation%20Summary%20Report.pdf LB Kensington and Chelsea, 2011. Core Strategy. Accessed at: https://www.rbkc.gov.uk/planningandbuildingcontrol/planningpolicy/corestrategy/idoc.ashx?docid=bef55fdc-782f-4b0e-9b93d207d17234ca&version=-1 LB Kensington and Chelsea, 2019. Local Plan. Accessed at: https://www.rbkc.gov.uk/planning-and-building-control/planning-policy/local-plan/localplan-2019

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