Hackney Central Master Plan P1-30

LDF

Local Development Framework

Draft Interim Hackney Central Area Action Plan (Phase 1) - Masterplan March 2009

DEVELOPMENT PLAN DOCUMENT FOR PUBLIC PARTICIPATION

CONTENTS PART I: Context and Analysis Chapter 1: Introduction 1.1 Purpose of the Masterplan 1.2 Who is it for & How can it be used? 1.3 Method and Approach 1.4 Status of the Masterplan 1.5 Masterplan Overview Chapter 2: Context “The place and its people” 2.1 Taking the Wider View 2.2 The Study Area 2.3 Masterplan Development 2.4 Hackney Central consultation 2.5 The Local Context 2.6 Summary SWOT 2.7 Key Issues 2.8 Options Development

7.3 7.4 7.5 7.6 7.7

Approach to crossings and junctions Cycle Routes Public Transport Parking Strategy Servicing Strategy

Chapter 8: Theme 5- Promoting forward thinking sustainable regeneration strategies 8.1 Introduction - The Energy Strategy 8.2 Energy hierarchy 8.3 Energy reduction and efficiency guidance 8.4 Supply strategy 8.5 Energy service company 8.6 General considerations for renewables 8.7 GLA renewable energy compliance 8.8 Biomass guidance 8.9 Low carbon landmarks

PART III: Shaping Local Character PART II: The Masterplan Framework Chapter 3: The Masterplan Vision 3.1 Masterplan Vision 3.2 Masterplan Themes and Objectives Chapter 4: Theme 1 - Promoting high quality urban design for Hackney Central 4.1 Reinforcing character and identity 4.2 Enhancing town centre legibility 4.3 Addressing severance 4.4 Locating tall buildings 4.5 Maximising benefits of opportunity areas Chapter 5: Theme 2 - Enhancing the public realm 5.1 The importance of the public realm 5.2 Principle public spaces 5.3 Points of arrival 5.4 A clear street hierarchy 5.5 Play and Recreation Spaces 5.6 Management and Maintenance Chapter 6: Theme 3 – Ensuring a functional town centre for living, working and shopping 6.1 Land use strategy 6.2 Retail Strategy 6.3 Housing Provision 6.4 Employment Provision 6.5 Community Facilities 6.6 Development Content Chapter 7: Theme 4 - Establishing a coherent and attractive movement network 7.1 A hierarchy of movement and access 7.2 Pedestrian movement

Chapter 9: Character Areas and Opportunity Sites 9.1 Character Areas and Sites Overview 9.2 Area 01: Mare Street East 9.3 Area 02: Amhurst Road 9.4 Area 03: Mare Street 9.5 Area 04: St John-at Hackney Church 9.6 Area 05: Civic Heart 9.7 Area 06: Mixed Employment 9.8: Area 07: Traditional Streets 9.9 Area 08: Kenmure Triangle 9.10 Area 09: Horton Road 9.11 Area 10: Clarence Mews 9.12: Area 11: Clarence Road 9.13: Area 12: Residential Estates

PART IV: Moving Forward Chapter 10: Delivery and Implementation 10.1 Introduction 10.2 Delivery constraints and opportunities 10.3 Responding to the market 10.4 Council ownership 10.5 Private sites 10.6 Funding 10.7 Phasing 10.8 Risks 10.9 Conclusion 10.10 Moving Forward

APPENDICES A Relevant London Plan Objectives B Technical Energy Tables

LIST OF FIGURES AND TABLES PART I: Context and Analysis 1.1 2.1 2.2 2.3 2.4 2.5 2.6 2.7 2.8 2.9 2.10 2.11 3.1 3.2

Stages of the Masterplan Project Hackney Central and Dalston context The masterplan boundary Listed buildings and conservation area Crossrail 2 safeguarded land Constraints summary Opportunity sites Option 1 Option 2 Option 3a Option 3b Option 4 A vision for Hackney Central The urban design framework

PART II: The Masterplan Framework 4.1 4.2 4.3 4.4 4.5 4.6 5.1 5.2 5.3 5.4 5.5 5.6 5.7 5.8 6.1 6.2 6.3 7.1 7.2 7.3 7.4 7.5 8.1 8.2

Character areas Legibility Barriers to movement Indicative building heights 3D image of the Masterplan area Cross-section through the Masterplan area Areas for public realm enhancement Town Hall Square St John-at-Hackney Churchyard and Gardens New Town Square New connecting routes Gateways and Nodes Hierarchy of routes Play strategy Land use plan Retail strategy diagram Proposed community infrastructure Context map for London Borough of Hackney Vehicular movement network Pedestrian strategy Cyclist strategy Parking, access and servicing strategy Energy strategy Energy hierarchy

PART III: Shaping Local Character 9.1 9.2

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Proposed character areas Opportunity sites block reference diagram

9.3 9.4 9.5 9.6 9.7 9.8 9.9 9.10 9.11 9.12 9.13 9.14 9.15 9.16 9.17 9.18 9.19 9.20 9.21 9.22 9.23 9.24 9.25 9.26 9.27 9.28 9.29 9.30 9.31 9.32 9.33 9.34 9.35 9.36 9.37 9.38 9.39

Design principles and constraints for character area 01 Proposal for character area 01: Option 01 Proposal for character area 01: Option 02 View south towards proposed new town square Indicative schematic Option 1 Indicative schematic Option 2 View west along Morning Lane Proposal for Character Area 02 View towards Hackney Central station Schematic of station plaza site Station Plaza opportunity site Proposals for character area 03 The Narrow Way northern gateway site Indicative schematic of Mare Street character area Proposal for Character Area 04 The Rectory opportunity site Indicative schematic of The Rectory site Proposal for Character Area 05 Indicative schematic of Character Area 05 Proposal for Character Area 06 Indicative schematic of Hackney Yards Hackney Yards opportunity site Character Area 07: Traditional Streets Hackney Lanes opportunity site Indicative schematic of Hackney Lanes opportunity site Character Area 08 Indicative schematic of Kenmure Triangle Indicative schematic of Horton Road Proposal for Character Area 09 Proposal for Character Area 10 Indicative schematic of Clarence Mews Proposal for Character Area 11 Indicative schematic of Clarence Road Proposal for Character Area 12 Indicative schematic of the Trelawney Estate Indicative schematic of the Marcon Estate Indicative schematic of the Trelawney Estate

Tables 2.1 2.2 3.1 5.1 8.1 9.1

Masterplan Scoping opportunity sites table SWOT audit and analysis Masterlpan themes and objectives Proposed quantums of playable space CO2 reduction and cost Opportunity sites

PART I - CONTEXT AND ANALYSIS This section describes the Hackney Central Masterplan area and summarises the analytical work undertaken to date, which serves as a foundation for the Masterplan.

01 Introduction and Background 1.1 Purpose of the Masterplan A Masterplan is a comprehensive strategy for co-ordinated development and design in an area that reflects local aspirations for the future of that area. A Masterplan helps to guide development and provides confidence and certainty to developers and other public sector bodies that their proposals are grounded.

• Stronger definition of the town centre as the ‘civic heart’ to the borough and as a key civic and cultural hub within London;

Where a masterplan allocates land, as in the case of this masterplan, it must be prepared as an Area Action Plan.

• The quality of the public realm through a focus of investment in key routes and spaces, introducing areas of new public open space, and means of access to facilities.

The overall purpose of the Hackney Central Masterplan will be to establish the basis for shaping the regeneration of the area. It will ensure the continued and enhanced role of Hackney Central as an important Town Centre and civic heart to the borough, responding to the needs of future communities and housing growth over the coming years. The regeneration of Hackney Central will seek to address: • Town Centre liveability: through social and physical regeneration, including better streets and linkages, buildings, housing, community and cultural facilities as well as providing new public open spaces, especially enhanced green and play spaces; • Strengthened local character and enhanced heritage: by encouraging community-led development and facilitating an integrated and balanced town centre that is attractive as a place to live, work, visit and invest;

• To provide quality local retail and amenities for the people of Hackney Central, inspiring developers and stakeholders by illustrating how the area can be improved; and,

The Masterplan will meet these objectives by: • identifying the key strengths and weaknesses of the town centre; • ascertaining the issues that currently affect the town and may influence the town’s future; • setting out the principles and parameters for new development to take place - site design, capacities, uses, funding and phasing; • defining the principles for environmental enhancement to take place identification of local distinctiveness, character areas, improvement areas; • identifying areas to improve the public realm and introduce new public open space and community facilities; and, • assessing the practicalities of co-ordinated development and land assembly. The Masterplan guides the overall regeneration of Hackney Central, providing more specific detail than the emerging Core Strategy. An important aspect of the Masterplan is the promotion of high quality, sustainable mixed-use development.

The Civic heart, Mare Street shops and wealth of historic character capture much of the essence that is Hackney Central.

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Informal Community Consultation

Ward Members Consultation and Design Review Panel

Stage 3: Consultation Draft Masterplan (current stage)

Stage 4: Consultation Formal Consultation with Community, Stakeholders, Ward Members

Stage 5: Finalise Masterplan (Phase 1 AAP)

1.2 Who is it for how can it be used? The Council will use the Masterplan to: • identify potential for growth including residential in mixed-use development; • co-ordinate development within the town centre area; • ensure an appropriate mix of land uses, and thus allocate land; • assess developer proposals; and, • forecast future service and community facility needs. This draft Masterplan establishes a strategic framework identified through a series of policies and principles, setting out the policy context (in addition to the emerging Core Strategy) for development proposals coming forward within Hackney Central town centre. These principles will be used to inform development and proposals throughout the area

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Sustainability Appraisal

Equalities Impact Assessment

Stage 2: Initial Options

Hackney Central Masterplan Steering Group (Council officers, key stakeholders, etc.) Consultation/Meetings

Stage 1: Masterplan Scoping

and assess planning applications. Developers, land owners, stakeholders, residents; neighbourhood organisations and community organisations can use this document to: • identify suitable locations for new developments; • identify what density is appropriate and how they can integrate developments into the surrounding context; • identify what land uses are suitable on specific sites; • identify what types of developments the Council is planning for the area as a whole as well as specific sites; and • to forecast future service needs. All developers, individuals and organisations should work with the Council to achieve the principles set out in this document to inform proposals. The Policy/Design Principles are set out in a higlighted box throughout each theme and character area.

1.3 Method and Approach The project programme so far has been structured in the following stages: Stage 1: Masterplan Scoping & Initial Consultation Stage 2: Initial Options Stage 3: Consultation Draft Masterplan (current stage) Stage 4: Public Consultation/Public Participation Stage 5: Finalise Masterplan (Phase 1 AAP) These stages have resulted in two document parts, namely Part 1 – Hackney Central Masterplan Scoping and Baseline Report which consists of background supporting material which informed Part 2 – the Draft Hackney Central Area Action Plan (Phase 1) – Masterplan (this document). Following public consultation of this draft Masterplan, the Council will take into account all comments received to produce a final Phase 1 Area Action Plan to be endorsed by Cabinet. Following the endorsement of Phase 1 and the adoption of the Core Strategy, a Phase 2 Draft Hackney Central Area Action Plan will be prepared to reflect the adopted Core Strategy which will then be consulted on. Following public consultation and subsequent amendments made to the document resulting from comments received during the consultation period, the Phase 2 AAP will be adopted by Council as the final Hackney Central Area Action Plan. Sustainability Appraisal Underpinning the approach to the development of the Masterplan is the process of formulating and undertaking a Sustainability Appraisal (S.A.) for the key stages of the project. An SA has informed the preparation of the Masterplan and should be read in conjunction with this document. Equalities Impact Assessment The Masterplan is accompanied by an initial Equalities Impact Assessment that examines what effect the Masterplan’s implementation may have on different groups in the community. A full Equalities Impact Assessment will be produced during the drafting of the Submission version.

1.4 Status of the Masterplan This document has been prepared during a time of change within the current planning system. The Unitary Development Plan (UDP) is progressively being replaced by the Hackney Local Development Framework (LDF). Hackney’s Core Strategy Preferred Options Report has undergone statutory public consultation in April and May 2008. This Masterplan has been prepared as a Draft Area Action Plan (Phase 1) process as part of the Local Development Framework (LDF). It provides policy and design guidance to be used as part of the development control process and to help inform investment decisions. As a Development Plan Document, this Masterplan will be a material consideration in the assessment of planning applications, and will be able to allocate land use. On advice from the Government Office for London, Hackney Central Area Action Plan will follow the Core Strategy process to ensure consistency and conformity. This document therefore is Phase 1 of this AAP process; it replaces the existing Issues and Options Hackney Central Area Action Plan (2005). Once the Core Strategy is adopted, the AAP will be developed from this Phase 1 stage into a consultation document, and taken forward as a development plan document for full adoption. Consultation feedback from earlier stages and baseline information has therefore been fed into the production of this Masterplan. 1.5 Masterplan Overview This document is the culmination of the first three stages of work and sets out a strategic urban framework that will guide future development in the Town Centre. This masterplan also identifies the main ‘opportunity sites’ in Hackney Central and these represent the areas where change is most likely to occur and sets out possible development scenarios for these sites. It puts forward an urban design-led approach to the regeneration of the area, with an appreciation of context as a means of informing appropriate design solutions. It also provides illustrative examples for each opportunity site to show how they could

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develop based upon strategic urban design and development principles. The document is presented in four parts: PART I – Context and Analysis This section describes the Hackney Central Masterplan area site and summarises the analytical work undertaken to date, which serves as a foundation for the Masterplan. PART II – Masterplan Framework This section establishes the over-arching urban design framework and the development principles. This section also sets out the key topics of the Masterplan in terms of indicative preferred building footprints, a public realm strategy, land use, indicative building heights, movement and access and community infrastructure. PART III – Shaping Local Character This section outlines design parameters for each of the areas within the town centre, aiming to strengthen the character and unique identity that

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already exists. Detailed development proposals are envisaged and illustrated on a site-by-site basis. Some sites are shown as having different ‘scenarios’ to indicate different possibilities for development, dependent on land assembly, viability, cost, etc. The development proposals are indicated in both plan form and three-dimensionally, to provide a general sense of the overall massing of the proposed development on site. PART IV – Moving Forward This section provides the overall strategy for implementation and sets out which projects, measures and actions are required for successful delivery of the Masterplan. Matrix Partnership Ltd – Lead Consultants, Urban Design and Planning Ramboll Whitbybird Ltd – Transport, Energy and Sustainability Bernard Williams Associates – Land Assembly and Development Economics

02 Context: the place and its people 2.1 Taking the wider view Masterplans are being prepared in parallel for both Dalston and Hackney Central town centres to ensure that a complementary planning strategy is pursued for each location. Dalston and Hackney Central are the Borough’s two main existing town centres and as such will be the focus for new retail, commercial, leisure and other related development over the coming years. Dalston is the Borough’s foremost centre and is designated a Major Town Centre in the London Plan. Whilst Hackney Central is designated as a lower order District Town Centre, with the area a major focus for regeneration over the plan period, it is possible that growth will lead to it becoming elevated in planning policy terms. Both Masterplans also need to capitalise on major new planned rail infrastructure, such as the remodelling of both Dalston Kingsland and Hackney Central North London Line stations as part of the Overground Network. In Dalston, planned extensions to the East London Line are potentially to be accompanied by a new Hackney-Chelsea line station, transforming the way that the centre is connected to the London rail network. The development pressures that this new infrastructure will bring provides both challenges and opportunities for considering how each centre is to evolve in the future. Whilst both centres are major focal points for shopping, Dalston is primarily a comparison shopping destination (i.e. non-food such as clothing) and Hackney Central is largely a convenience shopping centre (i.e. food). At present too much spending power leaves the borough. It is therefore necessary to encourage the provision of more and higher quality shopping and services to encourage local residents to shop more locally for a wider range of goods and services. However, there is a finite quantum of such development that can be spread in market economic terms between the two

centres (and to a much lesser extent smaller centres) and so it is important that a complementary retail strategy is pursued in each location. Each centre has much in common in terms of future planning provision but also it is important to recognise the ‘unique selling points’ that sets each place apart and gives its special character. In Dalston, there are three fundamental influences that shape the dynamic of the area: • Kingsland High Street, a lively thoroughfare that is in parts somewhat run-down characterised by small, independent shops and services, many catering to the area’s ethnically diverse population in terms of food and other specialist products; • Ridley Road Market, a bustling street market that draws from a wide catchment area; and • the prevalence of creative industries and organisations that are located in the area, including a lively evening economy of clubs and bars. Although there are overlapping characteristics, Hackney Central is notable for: • the Town Hall, Hackney Empire Theatre and other related facilities establishing this as the civic heart of the borough; • the intimate qualities of the Narrow Way, flanked by St John’s-at-Hackney Church and churchyard, an area with a distinctive feel, though undermined at present by all day traffic congestion; and • like Dalston, the area is increasingly becoming a focus for cultural and creative activities, some transferring from Shoreditch. The strategic intention is to ensure a well-balanced offer, with two complementary poles of regeneration activity, each specified to strengthen local distinctiveness and character.

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Figure 2.1 Hackney Central and Dalston town centres context

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2.2 The Hackney Central Masterplan Study Area The Hackney Central Masterplan Area comprises and area of 36.7 hectares and is situated centrally within the London Borough of Hackney and east of Dalston town centre. The Masterplan site area was identified to incorporate what is commonly identified as the town centre area, including the principal shopping length of Mare Street and the Narrow Way, the Town Hall, Amhurst Road and the stretch of Morning Lane that includes the Tesco site. The Marcon and Trelawney Estates are also included along with St John-at-Hackney church and gardens. Figure 2.2 illustrates the study boundary.

2.4 Hackney Central Consultation As part of Stage I: Masterplan Scoping (Baseline), an informal community consultation event was held on Wednesday 9th April between 11 a.m. and 7 p.m. outside the Old Town Hall. The aim of the consultation was to get a snapshot of what issues are most important to those who use the town centre and how they would like to see development of the Masterplan move forward. The consultation/exhibition did not put forward any proposals for development but rather stressed the fact that future change could take many forms, from public realm improvement to new buildings. Feedback from the consultation was provided on questionnaires filled out during the consultation event or returned in the following weeks. A total of 85 responses were received. Analysis of the consultation feedback reveals the following: • The majority of people liked the public open spaces and local amenities Hackney Central had to offer; • Being part of a diverse and multi-cultural

2.3 Masterplan Development The draft Hackney Central Masterplan has evolved through various meetings and consultation events with key stakeholders and the local community. In December 2007 the London Borough of Hackney organised a steering group for the Masterplan, which included members from the Council, TfL, the GLA and the LDA. Throughout the project there have been informal and formal meetings with (amongst others): the Masterplan Steering Group; the local community (see Section 2.4); Crossrail; Network Rail; LBH Streetscene; St John-at Hackney church; Tesco; and, Arriva.

community is important to the local people; • Respondents were keen to see bus and traffic congestion resolved, most notably along the Narrow Way; • 75% of respondents like the streets and spaces in Hackney Central with the majority of people using them for shopping; • 51% of respondents do not find it easy to move around Hackney Central. Road safety is the primary reason; • 85% agreed with the opportunity sites identified. • Most respondents would like to see traditional and affordable housing and tended to prefer development to retain and foster existing local character; • 74% of respondents thought Hackney Central would benefit from a more diverse retail offer. The feedback suggests that there is no clear desire by the local people for new, large supermarkets; and, • Generally, respondents are keen to refurbish rather than demolish.

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Figure 2.2 The Masterplan boundary

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baseline. The report forms a background document to accompany the Masterplan. The Scoping Report considered a wide range of issues and identified both the strengths of the area as well as the challenges it faces. In particular the scoping study examined: • Character Areas; • Site and Context Analysis e.g. land use, open space etc.; • Access and Movement; • Energy; • Planning Policy and Initiatives; • Constraints and Opportunities; and, • Opportunity Sites.

Fig. 2.3 above identifies the listed buildings and conservation area to be taken into account in the masterplan.

A summary of the key physical constraints is provided in Figure 2.5. These identify some of the key aspects of the baseline analysis, including issues of legibility, frontage, tall buildings, character settings and open space/public realm quality. The following is a summary of the issues identified: • Barriers to movement - The presence of high level railway lines restricts the ability of people to move around Hackney Central, especially northsouth movement through the railway bridge which forms both a physical and psychological barrier. • Hostile pedestrian/cycle environment Congested roads, narrow pavements and some poorly overlooked locations create a difficult environment to get round for some people. These can also, in effect, act as a barrier to getting around.

Fig. 2.4 above identifies the constraints presented by the CTRL and safeguarded land and the proposed Chelsea-Hackney Line (Cross Rail2)

2.5 The Local Context This masterplan has been informed by the Hackney Central Scoping Report (February 2008). The scoping study was commenced as the initial stage in the preparation of the Masterplan. Its purpose was to undertake an audit and analysis of the town centre to provide a comprehensive environmental

• Conservation Areas and listed buildings Large parts of the Masterplan area are designated as conservation areas in recognition of their historic and architectural importance. A number of listed buildings are also present. They provide areas of positive character and will need to be respected by future development proposals. • Improve legibility - e.g. Strategic views and local views to well-known landmarks provide important signals to help people find their way around. Where possible these views should be preserved.

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Figure 2.5 Constraints summary

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• Important Settings - Key public buildings and streets are viewed within a wider setting or particularly well-defined area. Hackney Town Hall Square and St John-at-Hackney churchyard and gardens are notable ‘set piece’ spaces that emphasise the importance of these public buildings. • Gateways and nodes - These denote important points of entry into the Masterplan area, such as Town Hall Square, signaling that you have ‘arrived’ in the town centre. Minor nodes also indicate other places of activity or locations of significance such as secondary junctions or crossings. Many would benefit from improvements to reinforce their function. • CTRL and Proposed Chelsea Hackney line (Crossrail 2 - CR2) safeguarded land - Large parts of the area are safeguarded for the future CR2 project. This means that proposals for development within this area will need to consult with Crossrail to ensure they do not compromise the project. • The Narrow Way and Amhurst Road junction The Narrow Way is a distinctive meandering street but the quality of the environment is compromised by heavy bus congestion. The junction with Amhurst Road and Mare Street would benefit from significant improvements of its public spaces. • Public Transport - Hackney Central is well served by two railway stations and numerous bus routes. Development in this area should maximise its relationship with these public transport assets, improving their viability.

• Areas for tall buildings - The Hackney Tall Buildings Strategy (2005) has previously identified several areas where taller buildings might be able to be accommodated. The tower blocks on the Trelawney Estate are already visually prominent structures in one of these areas. • Opportunity Sites - A range of opportunity sites have been identified where there may be scope for change or refurbishment of existing buildings. The two single largest areas are the Tesco’s and Bus Garage sites and these potentially offer the greatest scope for change. • Edges - Many streets are well-defined by strong building lines, creating clear edges to the street. Other areas contain weakly-defined edges, particularly on Morning Lane. • Frontages - Many building frontages include positive lively facades, such as along Mare Street, with shops and businesses generating activity. Others are inactive or ‘dead’ frontages and create poor streets that can feel unsafe. Where possible these should be addressed. As part of the baseline analysis, a group of opportunity sites within the Masterplan area were identified where development and/or improvements are most likely. Some of these sites present opportunities for new development and others are more suited for refurbishment or other site improvements. Some of the sites included have been granted planning permission and the schemes planned for these sites are included within the Masterplan for the purposes of completeness and providing the development context for the Masterplan. The opportunity sites are listed in Table 2.1 and shown on Figure 2.6 over leaf.

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Figure 2.6 Opportunity sites

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Site

Hackney Central Masterplan Scoping Report Opportunity Sites

1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 25 26 27

Site Name Amhurst Triangle Clapton Bus garage 2-20 Morning Lane 356 Mare Street, The Rectory Land rear of 392-396 Mare Street 23-25 Sutton Place Land adj. 1 Sutton Place Trelawney Estate Hackney Central and Hackney Downs Station upgrading Service First Centre 280 Mare Street Florfield Road Depot 199-205 Richmond Road Tesco site Morning Lane 250-352a Bohemia PLace 298-300 Mare Street Ocean Venue, Mare Street 5-13 Morning Lane 302 Mare Street Car Sales Yard between 229 and 239 Graham Road 224-238 Mare Street 354 Mare Street (Old Town Hall) 117 Wilton Way 70 Sylvester Road 1-10 Great Eastern Buildings, Reading Lane 3-13 Lower Clapton Road Marcon Estate and Aspland Estate

2.6 Summary SWOT Analysis The issues and considerations emerging from the Hackney Central Scoping Report reveal that the area has many positive attributes, as well as challenges. These also present potential opportunities for improvement, although certain issues pose potential threats to change. The Strengths, Weaknesses, Opportunities and Threats (SWOT) are summarised in Table 2.2 [overleaf].

Table 2.1 Scoping Report Opportunity Sites

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Strengths • • • • • • • • • •

Historic buildings Cultural diversity Strong local landmarks Good open spaces and trees Excellent public transport links A clear High Street character A clear focus for civic activities A good mix of uses in the town centre Areas of positive historic and architectural character A variety of independent traders and national chains

Weaknesses • • • • • • • • • • •

Traffic congestion i.e. bus and car congestion, especially bus congestion on the Narrow Way Poor connections to railway stations Low quality of pedestrian environment Limited uses within existing public open spaces Inactive frontages and weakly defined streets in some areas Restricted north-south connections Limited connections east of Mare Street Railways divide the area Areas of poor architectural quality / townscape Low perception of safety Limited retail offer

Opportunities • A range of locations and potential for change / improvement, including sites within the heart of the town centre • Potential improvements to connections through the area, both east-west and north-south • More improved shopping facilities • Enhanced pedestrian environment / streetscape • Reduced traffic dominance • New and improved public open spaces • Opportunities to improve connections to and enhance existing stations • Enhance areas of weak townscape / character • Potential to address the perceived safety of some areas • Good potential for sustainable forms of development Threats • Ad hoc “piecemeal” development • Missed opportunities through uncoordinated development of key opportunities sites • Continued traffic congestion • Inappropriate/poorly designed development could harm existing character • Low perceptions of safety Table 2.2 SWOT (Audit and Analysis Summary)

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Understanding the Place 2.7 Key Issues Key issues and themes emerging from the Scoping Report study were: • Retention and enhancement of the Conservation areas with specific attention to those areas that exhibit clear character settings (e.g. the Narrow Way); • Opportunities for taller buildings are influenced by: • areas along rail alignments where the CTRL and Crossrail will constrain development potential; • backland areas within existing housing estates; and • areas where sensitivity to existing traditional housing will be required and character; • Key local and strategic view corridors; • Reinforcing of a number of major nodes across the area and attention to more local gateways as shown; • Areas requiring significant public realm enhancement, especially aligned with key routes into the town centre (e.g. Amhurst Road, Mare Street); • Reinforcing of connections into the open green spaces to the northeast of the area around St John-at-Hackney church and improvements to the grounds themselves; • Addressing the key intersection at Mare Street, Amhurst Road and the Narrow Way including the intersecting rail infrastructure; and, • Addressing comprehensively the Tesco and bus garage locations.

2.8 Options Development and Summary Four preliminary options were developed based on the key issues arising out of the Masterplan Scoping Report. They represented a holistic response to the over-arching issues of the current lack of a high quality public realm, open space, accessibility, economic vitality, and active frontage. Each option was developed in sufficient detail to indicate block layouts and building footprints. The options were also tested in terms of site needs, transportation and energy implications. The options were illustrated in plan form to convey the massing and form. The four options have been prepared as the basis of discussion and a comprehensive evaluation has yet to be applied. They seek to convey a sliding scale from the ‘do minimum’ to the ‘do maximum’. Option 1 - the minimum option - represents a way forward with no planning-led intervention, whilst Option 4 seeks more significant redevelopment to re-integrate parts of the town centre with the existing fabric. With greater levels of change comes a greater ability to create a shift in overall character and introduce new uses into the area. Clearly at the lower end of the scale, policy objectives relating to such issues as open space and play facilities, for example, will fail to be met. There will also be fewer planning obligations generated to invest in community infrastructure. However, the upper end of the scale raises major delivery questions - both from a policy perspectives (e.g. the quantum of retail floor space and the impact of this) and in terms of funding and logistics. Comprehensive change will require significant land assembly and establishing co-ordinated solutions such as an integrated town centre - wide energy solution will be far from easy.

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The SA assisted in the assessment of Options and led to the propositions for the site scenarios set out in Part III. A combination of Options 2 and 3b was selected, subject to further refinement, modifications and more detailed proposals. This combination puts forward the most significant positive change for the town centre whilst maintaining and strengthening the existing character and providing a new and improved public realm network. 2.8.1 Option 1 Overview Option 1 sets out a development scenario that could emerge where there to be no significant planning-led intervention. Design development is predominantly based on a ‘sites-led’ approach where sites likely to come forward through the market are the key drivers. This option does not therefore capture the potential of Hackney Central as would a comprehensive approach. It does, never the less, allow for known sites to be brought forward and, where possible, seeks to recycle value for wider public realm improvements (e.g. along Morning Lane). The key development proposals include: • Development of the ‘Tesco’ site south of the

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railway and fronting onto Morning Lane in accord with current Tesco proposals tabled at ‘pre-application’ discussions. Development includes new 80,000 sq.ft (7,400sq.m) store with 100 residential flat units above. Localised improvements to the streetscape and highways along Morning Lane. • Redevelopment of a number of mixed use sites along the southern and northern edges of Morning Lane towards the junction with Mare Street. • Sites granted planning permission or under construction that include Sutton Place, Richmond Road and 239-257 Graham Road. Option 1 was discarded because it does not facilitate significant positive change for the town centre. By not proposing any significant new public open space or enhancements to major road arteries. As such, it does not redress the inadequacies of the public realm quality identified in the Scoping Report. Furthermore, the residential development capacity is low, significantly less than that identified if London Plan density recommendations were applied (see Masterplan Scoping Report).

Figure 2.7 Option 1 Vision

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2.8.2 Option 2 Overview Option 2 examines the development scenario that could result from a ‘moderate’ amount of intervention. The proposal therefore identifies a greater number of ‘peripheral’ sites that could come forward (e.g. the site west of the railway off Richmond Road) as well as considering a reconfigured Tesco development south of the railway along Morning Lane. A key proposal is also the proposition to relocate the bus garage to a basement facility, allowing a new residential development at grade with high quality public realm. The key development proposals include: • Development of the ‘Tesco’ site south of the railway and fronting onto Morning Lane. Development includes a new 9,300sq.m store over 2 levels, delivery/storage of 2,600sq.m. with 180 residential flat units above.

• Refurbished Town Hall to include environmental technologies as exemplar for retro-fitting existing buildings. • The Rectory site, adjacent Learning Trust buildings and yard are comprehensively addressed. • 3-13 Lower Clapton Road and 2-20 Morning Lane are comprehensively developed with mixed retail and residential development. • Sites on Wilton Road/Sylvester Street are comprehensively developed around existing buildings to be retained. • Sites on Reading Lane developed for mixed residential/commercial uses. Option 2 was considered in part because there would a better provision of public realm improvements throughout the town centre and the new public link proposed off Morning Lane connecting through to the arches would facilitate greater pedestrian permeability.

• Additional smaller scale retail units (with residential units above) addressing the new link between Morning Lane and Mare Street/the railway. These screen the unsightly backs of the existing buildings along Mare Street.

In addition, the residential development capacity in Option 2 is a significant increase on Option 1. The retail floor space delivers over the amount of provision in the Hackney Retail and Leisure Capacity Study (9,200sqm net additional in the Borough).

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• Redevelopment of the bus garage site to basement facility to allow for new at-grade residential-led development with an element of office use.

Figure 2.8 Option 2 Vision

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2.8.3 Option 3a Overview Option 3a envisages significant change around the area of major potential - focusing on the Tesco and Bus Garage sites with an improved Hackney Central station entrance. Under this scenario, there will be major public open space improvements along the southern edge of St John-at-Hackney gardens and much greater east-west permeability. This option builds upon the development sites likely to come forward under Option 2 which are also envisaged to occur under this option. The southeastern end of Amhurst Road is redeveloped to provide higher quality and higher density residential development, greatly improving the streetscene of this street. Public realm enhancements are more significant but focused primarily on improvements to the areas surrounding the core area and associated junctions to assist pedestrian movement. The key development proposals include: • Tesco’s is relocated to the north side of the railway above a newly constructed bus garage located beneath the store. • The existing Tesco site is redeveloped. • New residential development south of the railway and fronting Morning Lane.

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• A new public space is created in front of the Trelawney Estate with enhanced pedestrian connections and links south to Paragon Road. • The public space adjacent to the Old TownHall is remodelled. • The Rectory site, adjacent Learning Trust buildings and yard are comprehensively addressed. • 3-13 Lower Clapton Road and 2-20 Morning Lane are comprehensively developed. • Sites on Wilton Road/Sylvester Street are comprehensively developed around existing buildings. • Sites on Reading Lane developed. Option 3a was dismissed because of the complexities of the land swap between Tesco and the bus garage, but also because of the scale of the development. It was not felt to be appropriate to introduce a large format retail development adjacent to the sensitive setting of the church gardens. This option however delivers a major residential-led mixed-use offer along Morning Lane.

Figure 2.9 Option 3a Vision

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2.8.4 Option 3b Overview Option 3b focuses on a variation to the major opportunity area east of Mare Street and focusing on the Tesco and Bus Garage sites. Under this scenario development is re-organised to resolve access constraints currently impacting on the bus garage (bottle neck with single access in/out). The bus garage is located south of the railway under a ‘land swap’ arrangement with Tesco. The Garage benefits from better access off Morning Lane, better internal circulation and a new exemplar town centre facility. The benefits to Tesco include a much more visible frontage onto the primary shopping route (Mare Street / the Narrow Way) and frontage onto what will become a new high quality public open space at the Old Town Hall. This option also builds upon the development sites likely to come forward under Option 2 which are also envisaged to occur under this option. Public realm enhancements are more significant but focused primarily on improvements to the areas surrounding the core area and associated junctions to assist pedestrian movement. The key development proposals include: • Tesco relocated to the north side of the railway

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with a new 8,400sq.m store. • The bus garage moves south of the railway. • A new high quality public route is provided to connect Trelawney Estate to the bottom of narrow Way. • A new public space is created in front of the Trelawney Estate with active ground floor uses. • The public space adjacent to the Old Town Hall is enhanced. • Key ‘peripheral’ sites are developed. • The Rectory site, adjacent Learning Trust buildings and yard are addressed. Elements of Option 3b were dismissed (as with Option 3a) because of the complexities of the land swap between Tesco and the bus garage. Similarly it was not felt to be appropriate to introduce a large format retail development adjacent to the sensitive setting of the church gardens. Option 3b was, however, partly selected for the treatment to the backs of Mare Street and the design of the new pedestrian routes through the arches.

Figure 2.10 Option 3b Vision

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2.8.5 Option 4 Overview Option 4 seeks to radically transform the character of retail and public realm offer. At present the centre has a well established civic quarter but no clearly defined retail heart. This lack of retail centrality results in a dispersed rather than consolidated retail-focus. A new large retail development co-located with a new high quality urban piazza at the junction of Narrow Way, Mare Street and Amhurst Road is proposed. Existing retailers (e.g. M&S) would be re-provided in the new retail centre with the bus garage located in basement. The key development proposals include:

the Old Town Hall open space. • New public piazza at junctions of Narrow Way/ Mare Street/Amhurst Road. • New Hackney Central station. • The Rectory site, adjacent Learning Trust buildings and yard are addressed. • 3-13 Lower Clapton Road and 2-20 Morning Lane are comprehensively developed. • Sites on Wilton Road/Sylvester Street are comprehensively developed.

• Redevelopment of the bus garage site • Sites on Reading Lane developed. • Significant new retail accommodation (19,000sq. m) that would provide for 2 new anchor stores. • Development of the Tesco site south of the railway to allow for new north-south pedestrian route. • New mixed use retail/residential addressing the new north-south link between Morning Lane and

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Option 4 was discarded primarily because of the scale of the proposed new piazza described above. It was felt that the character of the area - that of tight-knitted development should be retained. It was also not deemed appropriate to introduce a large quantum of new retail (new anchor stores) adjacent to the church gardens.

Figure 2.11 Option 4 Vision

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