Hackney Central Master Plan P102

PAGE TO BE DELETED

Policy/Design Principles 9.2 Mare Street East 1. Character: Distinctive new urban town centre character. 2. Permeability: New pedestrian connection through the railway arches incorporating public spaces. 3. Frontages 1: Strong frontages defining the edges of their site. 4. Frontages 2: Active ground floor to main frontages, (Mare Street, Morning Lane and new link), quieter uses adjacent to churchyard. 5. Building Heights Morning Lane: 6-8 storeys with the potential for one or more towers (subject to constraints). Bohemia Place: Up to 4-storeys in height. Bus Garage: Up to 4 storeys maximum adjacent to the park provided the building design is sensitive to St John’s Church and churchyard setting. 7. Land Uses: Retail at ground floor and in the arches, mixed commercial and residential flats above. 8. Landmarks and Corners: Landmark features at key junctions. Corners on Morning Lane

addressed/emphasised. 9. Public Spaces: Space outside the Old Town Hall to be enlarged and connected with the new route south through Tescos. Remodel the space between the Trelawney Estate and Morning Lane. 10. The Arches: Refurbished with new mixed uses to enliven Bohemia Place. 11. Servicing: Service areas in rear courts or on-street servicing for Bohemia Place or Morning Lane sites, where feasible, with deliveries restricted to outside peak times; 12. Bus Garage: Option 1 - Garage is relocated below ground with ramp access from Bohemia Place; Option 2 - Existing garage facility is retained at grade with new retail/office building at the front of the site. 13. Parking: Town centre parking in a new underground car park beneath the Tesco’s site. 14. Energy: The use of a neighbourhood based combined heat and power system should be provided on the Tesco site to meet GLA requirements.

Figure 9.4: Proposal for Character Area 01: Mare Street East Option 1

102

Figure 9.5: Proposal for Character Area 01: Mare Street East Option 2

Figure 9.6: View south towards the proposed new town square and pedestrian route through the railway arches

103

Opportunity Site A5 Bus Garage (east) Site Area: 7870 sqm Proposed Building Footprint: 2610 sqm Proposed Building Height: 4-6 storeys (4 storeys facing park) Proposed Use: Option 1. A mix of retail, commercial and residential uses across this site with active ground floor frontages (facing the Narrow Way and Bohemia Place) with quieter uses addressing the park Option 2. Existing bus garage retained. Retail and office development on front part of site (3 storeys)

Opportunity Site A1 Tesco’s store and car park (east) Morning Lane Site Area: 10360 sqm Proposed Building Footprint: 8350 sqm Proposed Building Height: 6-8 storeys with potential for two towers on podium Proposed Use: Retail at ground and first floor with residential above Opportunity Site A2 Site Area: 4610 sqm Proposed Building Footprint: 1450 sqm Proposed Building Height: 4-6 storeys Proposed Use: Retail uses at ground floor facing the new pedestrian link. Residential development above. Potential for Mews workspace in courtyard

Opportunity Site A6 Bus Garage (west) Site Area: 3760 sqm Proposed Building Footprint: 1150 sqm Proposed Building Height: 4-6 storeys (4 storeys facing park) Proposed Use: Retail at ground floor and first floor with residential above

Opportunity Site A3 5-13 Morning Lane Site Area: 450 sqm Proposed Building Footprint: 350 sqm Proposed Building Height: 4-5 storeys Proposed Use: Retail provision at ground floor facing Morning Lane. Residential development above

Opportunity Site A7 350-352a Bohemia Place Site Area: 1670 sqm Proposed Building Footprint: 150 sqm Proposed Building Height: 1 storey Proposed Use: Retail pavilion in new town square

Opportunity Site A4 302-304 Mare Street Site Area: 160 sqm Proposed Building Footprint: 160 sqm Proposed Building Height: 5 storeys Proposed Use: Retail at ground and first floor with office space on upper storeys

Bus garage located in new basement facility, with mixed uses above

Site A6 Site A7

Site A8 (basement)

Site A5 Site A9

New town square with pedestrian connection under the railway

Site A2 New pedestrian link with enhanced crossing at Morning Lane

Site A3 Site A4

Figure 9.7: Indicative schematic of the New Urban

Site 10

Quarter Character Area (Option 1)

New buildings define the edges of the street

104

Opportunity Site A8 Bus Depot (basement) Site Area: 8000 sqm Proposed Building Footprint: 8000 sqm Proposed Building Height: Basement level Proposed Use: Bus garage facility (underground)

New prime retail and office building fronting the new public space

Existing bus garage retained

Opportunity Site A9 Railway Arches, Bohemia Place Site Area: 1600 sqm Proposed Building Footprint: 1600 sqm (Gross) Proposed Building Height: 1 storey (existing) Proposed Use: Mixed retail uses Opportunity Site A10 2-20 Morning Lane and Trades Hall Site Area: 2080 sqm Proposed Building Footprint: 1000 sqm Proposed Building Height: 4 to 5 storeys Proposed Use: Retail at ground floor facing Morning Lane with residential above

Figure 9.8: Indicative schematic of New Urban Quarter Character Area (Option 2)

Figure 9.9: View west along Morning Lane towards Mare Street

105

9.3 Character Area 02: Amhurst Road 9.3.1 Existing features to be respected/ enhanced/addressed

Existing negative characteristics that should be addressed include:

Amhurst Road forms a major route into Hackney Central and stretches between the Dalston Lane junction and the bottom of the Narrow Way in the heart of the town centre.

• A  mhurst Road is dominated by traffic movements with major junctions at each end. Although it will continue to provide an important vehicular route measures should be taken to enhance conditions for pedestrians and cyclists, particularly at the junctions.

Key positive characteristics to be respected: • M  edium building heights along the north side of Amhurst Road (typically 3-4 storeys). • T  raditional architectural styles, with back edge of pavement development towards the town centre and the junction with Dalston Lane.

• T  he vacant land and car park create an area of unkempt and underutilised space in the heart of the town centre. • T  he vacant former station ticket office is vacant and surrounded by low-grade spaces.

• C  onveniently located close to Hackney Central station.

• D  ead frontages along the ground floor of Marks & Spencers (Amhurst Road frontage).

• T  he original ticket office (currently vacant) is a positive building at the very heart of the town centre.

• P  oor quality, unwelcoming pedestrian connection between the existing station and the Mare Street.

• T  he amenity of adjacent properties, such as the buildings on the Marcon estate. • S  ubterranean constraints associated with the Channel Tunnel Rail Link (CTRL) and land safeguarded for the possible future HackneyChelsea underground line (Crossrail 2 – CR2) must be taken into account.

• M  arcon Estate is of indifferent architectural appearance. Its frontage to Amhurst Road contains areas of underutilised land and building set backs weaken the definition of the streetscene.

• E  xisting Buildings adjacent to the ticket office are characteristic of the conservation area and must be retained. They would benefit from refurbishment and improved maintenance.

Vacant land adjacent to Hackney Central station station

106

Amhurst Road contrasts traditional houses with modern estate development

Policy/Design Principles 9.3 Amhurst Rd 1. C  haracter: Potential to reinstate a well defined traditional street, with high density, contemporary development but which complements its historic setting. 2. C  rossrail 2: Proposals must satisfy the requirements of Crossrail Links Ltd, allowing for the site to be used for CR2 at a future date. 3. Interim solutions: Station Plaza could accommodate interim schemes (medium term lifespan) enabling the area to be reclaimed for the purposes of CR2 at a future date. Temporary modular buildings could provide a solution. Alternatively, as a minimum requirement, the existing vacant area should be landscaped to provide public open space until such time as the site is able to be developed.

on the back edge of the pavement/space. 7. Frontages 2: Active ground floor containing mixed uses to Station Plaza site along Amhurst Road and the route leading to the station. 8. Building Heights: 4 storeys although temporary development at Station Plaza could potentially be lower subject to its design. 7. Land Uses: Mixed uses of shops, cafes or other suitable uses at ground floor at Station Plaza with residential above. The Amhurst Gateway would be residential development. 8. Landmarks and Corners: Strengthen the presence and setting of the ticket office as a local landmark. The corner of the new Amhurst Gateway building should address the corner as a point of entry.

4. S  tation improvements: The former station ticket office should be reinstated and become the new main entrance to the station. Potential for a southern entrance, possibly through the car yard on Graham Road should be explored.

9. Public Spaces: Redesigned space outside the ticket office to enhance the quality of the public realm and should be considered alongside any wider improvements to the Narrow Way junction.

5. P  ermeability: Enhancement of the existing connection between the station and Mare Street.

11. Servicing: Rear service courts or on-street servicing if feasible, with deliveries restricted to outside peak times. 13. Parking: Minimum residential/commercial parking, generally limited to the needs of disabled users.

6. F  rontages 1: Strong frontages defining the edge of their sites fronting Amhurst Road, and adjacent pedestrian link. Built edges close to or

Figure 9.10: Proposed for Character Area 02: Amhurst Road

107

9.3.2 Proposals for Character Area 02 The proposals for this character area identify two potential opportunity sites comprising (B1) Station Plaza and (B2) Amhurst Gateway. Station Plaza occupies a pivotal position within the heart of the town centre and forms part of the nexus of Hackney Central, which ties the area together. The station is a key component of the sustainability of the town. Development around the station could significantly improve access to this facility, which is currently illegible and, in places, threatening. However the central location invites a mix of retail and high density residential uses, enhanced street frontages and public realm improvements together with the refurbishment of the existing historic buildings, including the original ticket office. Much of this area is contains land safeguarded for the Crossrail2 (CR2) project and poses a major constraint.

However, until the project is more defined it is not known what the exact requirements will be. As such, proposals for this area would need to have regard to the constraints imposed by CR2 and this is likely to necessitate temporary, interim solutions that would provide significant aesthetic and functional improvements in the medium term, but which would allow the area to be reclaimed for CR2 when this becomes necessary. As a minimum requirement, the area of vacant land should be landscaped to provide an area of temporary public open space, to ensure a more satisfactory treatment of this area until it is able to be developed. Amhurst Gateway envisages the redevelopment of part of the frontage of the Marcon Estate onto Amhurst Road and would better define the townscape and the mark a point of entry into the town centre.

Figure 9.11 View towards a reinstated Hackney Central Station and enhanced public realm at the bottom of the Narrow Way.

108

Figure 9.12: Indicative schematic of Station Plaza opportunity site

Architectural response sensitive to nearby conservation area and neighbours

Site B1

Interim mixed use development

Existing buildings retained and refurbished

Site B2

Care to maintain residential amenity of existing dwellings

Well defined frontages to Amhurst and Malpas Road

Potential for southern entrance to the station

Ticket office re-opened and improved public realm at entrance

Enhanced pedestrian connection to station

New building to address corner

Opportunity Site B1 Amhurst Road Sites Site Area: 4550 sqm Proposed Building Footprint: 2050 sqm Proposed Building Height: 4-5 storeys Proposed Use: Retail at ground floor with employment on first floor and residential above Opportunity Site B2 Old Hackney Central Ticket Office Site Area: 1000 sqm Proposed Building Footprint: 360 sqm Proposed Building Height: 2 storeys Proposed Use: Residential Figure 9.13: Amhurst Road and Station Plaza opportunity site

109

9.4 Character Area 03: Mare Street 9.4.1 Existing features to be respected / enhanced / addressed Mare Street has a distinctive high street character. It is the predominant character area of the town centre and acts as both a physical and functional axis around which the adjoining areas are linked. Mare Street and the Narrow Way are bustling streets with a vibrant atmosphere, and the Narrow Way in particular has a distinctive winding alignment and very enclosed feel. The area also contains many good quality buildings, although some are unremarkable or poor. The quality of the retail offer is also mixed. Traffic congestion, particularly bus congestion on the Narrow Way, also detracts from the quality of the environment for other users. Key positive characteristics to be respected: • Medium building heights along Mare Street and the Narrow Way (typically 3-4 storeys). • T  raditional architectural styles, with buildings located on the back edge of the pavement. • M  are Street/Amhurst Road junction is a crucial ‘nexus’ that links key routes and places in the town centre. • T  he original ticket office (currently vacant) is a positive building at the very heart of the town centre. • T  he Old Town Hall and St Augustine’s tower form memorable landmarks within a distinctive open setting.

Existing negative characteristics that should be addressed include: • Mare Street and the Narrow Way suffer from traffic congestion, with buses particularly problematic on the Narrow Way, due to their size in this tight street and the number of buses that use this road. • T  raffic dominated streets and junctions at Mare Street/Amhurst Road, Mare Street/Morning Lane and the Narrow Way/Lower Clapton Road at the expense of other users. • L  ack of an ‘attractor’ at the top of the Narrow Way to draw pedestrians along this shopping street. • T  he former station ticket office is a key focal building in its location, however, it remains vacant and its setting is poor. • T  he railway over-bridge forms a visual and psychological barrier to movement. • D  ead frontages along the ground floor of Marks & Spencers (Amhurst Road frontage). • P  oor quality, unwelcoming pedestrian connection between Mare Street and Hackney Central station. • P  oor quality corners and frontages at the junction of Mare Street and Lower Clapton Road and Mare Street and Morning Lane. • Some low quality shops and lack of places to eat.

• V  ibrant, bustling atmosphere with a mix of uses and independent and national traders.

• S  ome poorly maintained buildings and uncoordinated shop front design results in a tired looking environment in places.

View south along the Narrow Way

The junction of the Narrow Way and Amhurst Road forms the nexus of Hackney Central

110

Policy/Design Principles 9.4 Mare Street

9.14 Proposal for Character Area 03: Mare Street

1. Character: Retain its high street character, vibrancy/atmosphere and distinctive architectural richness. 2. Bus congestion: It is an ambition to remove bus traffic from the Narrow Way and pedestrianise this street. Evaluate the potential to pedestrianise the Narrow Way to create a high quality environment. 3. Pedestrian environment: Reduce conflicts between pedestrians and traffic and introduce measures to prioritise pedestrian movement that conform to the main desire lines for pedestrian activity in the area. 4. Magnet: Locate an ‘attractor’ use or magnet at the top of the Narrow Way to act as a destination, attract visitors and encourage pedestrian movement. 5. Station improvements: The former station ticket office should be reinstated and become the new main entrance to the station. Potential for a southern entrance, possibly through the car yard on Graham Road should be explored. 6. Environmental enhancement: As the principle street in the town centre Mare Street and the Narrow Way should provide the focus for public realm improvements, to include: • High quality surface treatment, including to achieve a new shared surface design at the junction with Mare Street and Amhurst Road and continuing south to the junction with Graham Road, improve the experience and safety for pedestrians and unify this central location. • New palette of streetscape furniture and materials that could include creative lighting features to link the Narrow Way into Mare Street (south of the railway bridge) at night. • Opportunities for public art at key nodes (e.g. the new square south of the Old Town Hall, the northern end of the Narrow Way and creative treatment to the railway over-bridge). • Shop front improvements focusing on achieving consistent and unobtrusive shop signage. • Investment in improvements to the facades of buildings lining Narrow Way. This ‘face lift’ would include removal of items that ‘clutter’ the facades along with basic maintenance; • Potential to introduce canopies at shop fronts to provide an all-weather alternative for pedestrians • Ensuring all street signage is integrated into a common design palette and where possible colocated on vertical structures (to avoid multiple poles for different signs to reduce clutter). 111

Policy/Design Principles (Continued) 9.4 Mare Street (continued) 7. Public Spaces: Associated with the environmental enhancement of this character area (see above) key public spaces should be addressed as follows: • A major new high quality public space in front of the bus garage to signify the importance of this location and provide a clear focal point. Designs should be approached comprehensively with proposals for the improvement of the Station entrance space and the Mare Street Amhurst Road junction. • A redesigned space outside the ticket office to enhance the quality of the public realm and create a welcoming, attractive space. Improvements should be considered with wider junction changes. 8. Narrow Way Northern Gateway Opportunity Site: Buildings at the junction of Clarence Road and Lower Clapton Road form this opportunity site. The following principles should be applied to the development of this site. Magnet: Provision of a magnet to create a destination at this ‘edge of town centre’ site. Uses that could be considered include: • Evening related retail such as cafes and restaurants; • A cultural/leisure use such as a boutique cinema; • Larger format retail space across ground floor and mezzanine. Frontages 1: Strong frontages defining the edge of the site, close to the back edge of the pavement. Frontages 2: Active ground floor frontages. Building Heights: Varied, 4-6 storeys. Land Uses: In addition to a major magnet use, a mix of uses should be accommodated and could include smaller shops, cafes and employment space, with residential accommodation on upper floors. Landmarks and Corners: The corner at the junction of Clarence Road and Lower Clapton Road should positively address this corner. Servicing: Rear service courts or on-street servicing if feasible, with deliveries restricted to outside peak times. Parking: Minimum residential/commercial parking, generally limited to the needs of disabled users. 112

9.4 Proposals for Character Area 03 Mare Street is has a distinctive high street character and the proposals for improvements to this area focus primarily on its environmental enhancement, in terms of improving and maintaining the existing building fabric, raising the quality of the public realm and providing enhanced public spaces and tackling bus congestion on the Narrow Way. Buildings on Lower Clapton Road at the top of the Narrow Way are the only site to offer potential scope for new built development. The majority of the existing buildings are or poor or indifferent quality and a range of single storey shops represent the underutilisation of this space and present a poor face to St John-at-Hackney Church Gardens. Introducing an attractor use/magnet in this location would attract visitors and draw pedestrians up the Narrow Way.

Figure 9.15: Narrow Way Northern Gateway opportunity site

Opportunity Site D Narrow way northern gateway Site Area: 2650 sqm Proposed Building Footprint: 1960 sqm Proposed Building Height: 4-6 storeys Proposed Use: Retail/commercial at ground and first floor with residential above and behind

New development addressing Lower Clapton Road and the park with a magnet use to draw people up the Narrow Way and providing well defined active frontages Building to address important corner and close the view from the Narrow Way

Narrow Way

It is an ambition to pedestrianise the Narrow Way - examine the potential for the Narrow Way pedestrianised - buses re-routed

‘Face lift’ of existing buildings and shop fronts

Common treatment to the public realm to unify the town centre

Major new public square at the heart of the town Ticket office re-opened and improved public realm at entrance Treatment of railway bridge to make this a feature rather than a barrier Shared surface junction to unify the ‘nexus’ of the town centre and enhance pedestrian movement

‘Face lift’ of existing buildings and shop fronts

Key corner to be addressed

Junction improvements to enhance pedestrian movement

Figure 9.16 Indicative schematic of the Mare Street Character Area and opportunity site

113

9.5 Character Area 04: St John-at-Hackney Church Gardens 9.5.1 Existing features to be respected / enhanced / addressed St John-at-Hackney Church Gardens is the major public open space within the area. A mixture of different spaces, the gardens provide a formal setting for the church and Clapton Square to the north. Fine mature trees across much of this area provide a sense of tranquillity and isolation from the nearby bustle of Mare Street, creating a peaceful haven in the heart of the town centre. To the west of the churchyard and currently screened by a tall brick wall lies the former Rectory (although still within the ownership of the Church) a small Scout hut occupying the southern part of this area, a Learning Trust exclusion facility and small private yard in the northern part of the site. Key positive characteristics to be respected: • Medium building heights around the outsides of this area (typically 2-3 storeys).

Existing negative characteristics that should be addressed include: • Blank frontages around the adjoining bus garage building. • U  nsightly backs of buildings along the Narrow Way. • Lack of overlooking/natural surveillance. • U  nder utilised land at the Rectory, Learning Trust site and yard. • L  imited connections between the gardens and the Narrow Way. • P  otential enhanced connections east, towards Homerton. • Limited activities/function of formal spaces.

• Traditional architectural styles. • Formal setting to the church and Clapton Square. • B  oundary walls, structured pathways and railings contribute to the formality of the area. • Mature trees and landscaped open spaces. • C  hurch is a key a focus for community engagement and activities.

View through St John’s Church Gardens toward Sutton Place

114

View of the Rectory opportunity site

Policy/Design Principles 9.5 St John-at-Hackney Church Gardens 1. Character: Retain the tranquil and peaceful character of the gardens. 2. Church: Utilise church building for beneficial community uses, e.g. a meeting place for voluntary groups/organisations, a community cafe and outdoor seating on the southern side of the church. 3. Community Spaces: Expand the potential range of activities and uses able to take place within this area. Large spaces could accommodate activities, such as Farmers Markets or outdoor theatre. 4. The Rectory Opportunity Site: The following principles should be applied to this site. 5. Design character: This opportunity area forms part of the wider setting of the Church. It should reflect the character of the surrounding Conservation Area in terms of a modest grain and scale and respect for the setting of the church. 6. Defined Edges: Buildings should generally provide clear built frontages, being sited at or close to the outside edges of the plot, enclosing adjacent public routes or spaces with windows arranged to overlook these areas. 7. Heritage: Proposals must preserve or enhance the character or appearance of the conservation area, having regard to buildings and their settings, trees and historic features of interest. 8. Building Heights: 2-3 storeys maximum. Building heights should be 2 storeys where fronting St Johns Church and churchyard to respect its setting. 9. Residential Use: To comprise medium density residential development to maximise its potential as a central location whilst respecting the scale and setting of the Conservation Area.

Figure 9.17: Proposal for Character Area 04: St John-at-Hackney Church Gardens

10. Community Uses: Existing community uses in the form of a Scout hut and Learning Trust facility should be accommodated on-site or be re-provided on an appropriate alternative site that is equally convenient, and accessible within the local area, where there is a continued requirement for these facilities. 115

Policy/Design Principles 9.5 St-John-at-Hackney Church Gardens (continued) 11 Boundary Wall: The wall separating The Rectory from the churchyard should be retained, although proposals for potential modification of the wall may be considered in conjunction with the Borough of Hackney and English Heritage, where this would enhance the relationship between the development and the churchyard on terms of overlooking and public safety provided that the essential qualities of the conservation area are preserved or enhanced.

Opportunity Site C1 Rectory, Land rear of 392-396 Mare Street and the Learning Trust Site Site Area: 5400 sqm Proposed Building Footprint: 2030 sqm Proposed Building Height: 2-3 storeys Proposed Use: Residential with potential for community at ground floor to southern edge

12. Trees: Proposals should seek to retain existing mature trees and ensure that development does not adversely impact on their canopies or root structure 13. Servicing: Rear service courts or on-street servicing if feasible, with deliveries restricted to outside peak times. 14. Parking: Minimum residential/commercial parking, generally limited to the needs of disabled users. 9.5.2 Proposals for Character Area 04 The key elements for proposals for this character area involve greater beneficial use of the existing open spaces and the church building for community based activities and for the church to captialise on its important location and ability to reach out to the community for wider social benefits. Wider enhancement of the park could be achieved through improved edges in locations where existing boundaries are blank and unobserved. For example changes to the bus garage site should consider the relationship with the park and examine potential improvements to the existing situation. The existing Rectory, Learning Trust facility and yard to the rear of 392 - 396 Mare Street are a low density and underused site in the heart of the town centre. Collectively these sites form Opportunity Site C and represent an opportunity to address some areas of weakness in relation to this character area. However, proposals should always seek to maintain the unique tranquil quality of this area and manage changes sensitively. 116

Figure 9.18: The Rectory opportunity site

Possible community events space for outside activities e.g. market, ice rink in winter, outdoor theatre etc

Potential new link between the Narrow Way and the park Community cafe and outside seating

Site C

Sensitively designed residential development around the edges of the site (potential connections through existing wall) Unsightly backs of buildings on Mare Street screened by new development

Possible community events space for outside activities e.g. market, ice rink in winter, outdoor theatre etc Potential improved relationship with bus garage site to be enhanced

Figure 9.19 Indicative schematic of The Rectory opportunity site

117

9.6 Character Area 05: Civic Heart 9.6.1 Existing features to be respected / enhanced / addressed This character area is the civic, administrative and cultural heart of the town, comprising a cluster of key buildings and activities. The Town Hall, Hackney Empire theatre, Ocean venue and Library and Museum are focussed around the memorable Town Hall Square. The buildings are a mix of distinctive individual designs, situated directly on the back edge of the pavement they create a strong sense of enclosure and good definition of the space. Behind the Town Hall further Council related office development is taking place reinforcing its administrative and civic role. Mare Street passes through one side of this area with bus stops located on the Square making this an important primary route. Key positive characteristics to be respected: • Medium building heights (typically 3-4 storeys), although buildings around the square have a larger scale reflecting the public and cultural functions of the area. • Mixed, mostly positive architectural styles, with back edge of pavement development enclosing the street/space.

Existing negative characteristics that should be addressed include: • Mare Street is heavily congested and divides this area into halves, forming a barrier to pedestrian movement across the street. • The Ocean venue is a key building opposite Town Hall Square, but is vacant and requires a new positive use. • Dead frontages along the front and the rear of the Ocean building. • Potential for more varied activities to take place within Town Hall Square. • A lack of cafes and restaurants. 9.6.2 Proposals for Character Area 05 With the recent completion of the library/museum and the construction of the Service First Centre behind the Town Hall few opportunities remain for major new developments within this character area at the present time. Principle areas of change will be likely to relate to the use and function of existing buildings, potential remodelling of facades and improvements to the public realm.

• The formal setting of Town Hall and its square. • Mixed uses comprising, public/civic administration, business and cultural activities. • Bustling vibrant atmosphere.

Service road in front of the Town Hall

118

Mare Street and the Ocean venue

Policy/Design Principles 9.6 Civic Heart 1. Character: The civic and cultural character of this area should be maintained and enhanced to support the existing functions and vibrancy of this location. 2. Mare Street: Proposals should seek to reduce the dominance of traffic, creating a pedestrian priority area to enhance the ease of movement of pedestrians across Mare Street. 3. Town Hall Square 1: Explore the potential to enlarge the size of this public space. Reading Lane, Hillman Street and Wilton Way could be closed to general traffic and be designed to prioritise pedestrians. 4. Town Hall Square 2: Potential to convert the current Town Hall car park into a new public space incorporating a playable space to provide alternative public space with appeal and activities for different age groups.

Figure 9.20 Character Area 05: Civic Heart

5. Ocean Venue: Examine positive strategies to secure the future of this building for cultural related activities, such as cafes, restaurants, cinema or a mix of suitable uses to support the function of the character area. 6. Active Frontages: Dead frontages around the Ocean venue and other buildings should be addressed in any future proposals for changes of use, locating active uses at ground floor level. 7. Supporting uses: Cafes and restaurants, that would support the cultural role of this area, for example, pre-theatre dining, should be encouraged in appropriate locations.

Enlarge Town Hall Square

New treatment and enhanced pedestrian environment on Mare Street New use for the Ocean building Allow for cafes and restaurants to compliment the existing cultural facilities New uses to address dead frontages Figure 9.21: Indicative schematic of character Area 05: Civic Heart

119

9.7 Character Area 06: Mixed Employment 9.7.1 Existing features to be respected / enhanced / addressed This character area covers two areas of mixed employment but also contains some pockets of residential development. The northern area is at the junction of Institute Place, Dalston Lane and Amhurst Road. The southern area is located on Reading Lane. Distinctive buildings include the Institute, and traditional industrial warehouses. Access into the southern area is via Florfield Road and Florfield Passage, a narrow characterful path leading off Reading Lane. The area includes a mixture of modern office and depot facilities with lower grade employment buildings to the rear. Both areas are bounded by the railway line along their eastern edge. The area immediately north comprises the civic core of the town and the LBH Service First Centre is currently under construction on the site opposite. Hackney Grove is an important footpath/cycle path on the east of this area between Reading Lane and Richmond Road but it is poorly overlooked at present.

• Traditional industrial warehouse architecture of Florfield Passage. • The amenity of adjacent properties. • Useful pedestrian and cycle links along Hackney Grove. Existing negative characteristics that should be addressed include: • Some low grade industrial buildings architecture. • Relationship of buildings to the railway line. • Relationship with nearby neighbouring buildings. • Largely inactive frontages facing onto Hackney Grove.

Key positive characteristics to be respected: • Medium building heights (typically 3-4, storeys). • Traditional buildings, with most development located on the back edge of the pavement. • Tight grain and character of Florfield passage, Hackney Grove and Institute Place.

Fine grain, modest scale industrial buildings on Florfield Path

120

Modern commercial building

Policy/Design Principles 9.7 Mixed Employment 1. Character: To form part of a cluster of high quality modern mixed use office/residential buildings emerging in the context of the civic services facilities. 2. Access: The southern site is to be accessed off both Reading Lane and Richmond Road, with the principal access off Reading Lane. A new service road will provide access to into a shared service/courtyard area. Access from the south off Richmond Road will utilise the railway backlands area. 3. Frontages: Key development frontage should address the southern side of Reading Lane and respond in scale, massing and form to the emerging Service First Centre (under construction), with active frontages facing Hackney Grove where opportunities arise. 4. Grain: Other than the large modern office proposals, frontages should create a fine grain character, reflecting the existing ‘lanes’ of Hackney Grove and Florfield Passage and Institute Place. 5. Land Uses: Mixed employment and some residential, with potential for some live-work space. A range of office accommodation is to be provided from small scale ‘own front door’ type space to larger multi-let modern offices, and potential for residential development above offices. 6. Building Heights: Appropriate building heights in this area are informed by the existing built context (typically 3-5 storeys). Taller heights may be possible along the Reading Lane frontage (up to 5 storeys) to match the Service First Centre and 3-4 storeys to reflect the height of the Victorian warehouse fronting Richmond Road. Figure 9.22: Proposal for Character Area 06: Mixed Employment

7. Servicing: Office uses to be serviced from a shared internal courtyard at ground floor. An element of parking is also envisaged within the courtyard. Servicing will also take place along the western edge adjacent to the railway. 8. Parking: Car free with the exception of mobility impaired and large family-sized units or car club spaces. 9. Retained Buildings: Buildings of character and architectural interest, particularly traditional warehouse/industrial architecture associated with this character area should be retained and converted to maintain these elements of positive character in this area. 121

9.7.2 Proposals for Character Area 06 This character Area contains one area of relatively low grade buildings that has the potential to be redeveloped at a greater scale and density to make more efficient use of the site.

Opportunity Site E1 Hakcney Yards Site Area: 5860 sqm Proposed Building Footprint: 2790 sqm Proposed Building Height: Up to 5 storeys Proposed Use: Mixed. Employment, with elements of residential. Potential for some live-work units

Within the existing and emerging context, elements of this development of this could be up to 4-5 storeys in height in response to both the existing Victorian warehouse (Flowers East) on Richmond Road and the new Service First Centre on Reading Lane which is 5 storeys in height. Building grain should also respond to the more fined grained lanes associated with this area, where appropriate in terms of context. Some potential may exist to comprehensively redevelop/convert the nearby Vernon Hall and 21-23 Hackney Grove and could be considered as part of proposals for this area, particularly with the introduction of active frontages.

Figure 9.24: Hackney Yards opportunity site

Wider enhancement of the public realm should include improved surface treatments and links to Town Hall Square in a way that is consistent with the public realm strategy. Potential treatment of the railway bridges and associated streetscape to the west (on Reading Lane and Richmond Road) could also signify these locations as gateways into the town centre. Well defined frontage up to 5 storeys on Reading Lane

Mixed employment uses with some residential

Site E

Possible redevelopment of Vernon Hall and 21-23 Hackney Grove for mixed employment purposes and better interaction at ground floor level Narrow grain to reflect traditional character Railway arches converted for employment uses

Figure 9.23: Indicative schematic of Hackney Yards opportunity site

122

9.8 Character Area 07: Traditional Streets 9.8.1 Existing features to be respected / enhanced / addressed Areas of traditional streets are predominantly characterised by Victorian and Edwardian housing and apartment mansions providing consistent architectural treatment in a traditional street form. Buildings are located behind the pavement, set back slightly behind a narrow front garden. Building heights vary between 2-5 storeys depending on their location and design. These are generally, high quality residential areas. Key positive characteristics to be respected: • Moderate building heights (typically 2 storey, but up to 4 storeys in places). • Good quality traditional architectural styles, with short front gardens, bay windows and architectural detail. • Some mixed employment uses on the edges of these areas towards more commercial locations such as behind Mare Street. Existing negative characteristics that should be addressed include: • Some low grade industrial buildings. Figure 9.25: Character Area 07: Traditional Streets

• Relationship with nearby neighbouring buildings.

Typical traditional housing behind short front gardens

Edge of character area with a mix of uses

123

Policy/Design Principles

9.8.2 Proposals for Character Area 07

9.8 Traditional Streets 1. Character: Retain the traditional residential character and appearance of these streets.

It is envisaged that the majority of this character area will remain unchanged.

2 Building Lines: Building line should follow those of the established street pattern. 3. Grain: Frontages should create a fine grain character, reflecting the existing context. 4. Land Uses: Predominantly residential, although low-key uses compatible with a residential environment could be suitable. Locations close to existing commercial areas should reflect the commercial nature of these places and contain mix of uses, including commercial/office space and residential above. 5. Building Heights: Appropriate building heights in this area are to be informed by the existing built context (typically 2-3 storeys depending on the location). Potential for a minor taller accent. 6. Frontages: Windows should be arranged to overlook public streets and spaces. 7. Residential Parking: Retain on-street parking. 8. Retained Buildings: Existing buildings that make a positive contribution to the character appearance of this area should be retained and refurbished in the first instance, rather than demolished and replaced.

One potential opportunity area has been identified. Hackney Lanes (Sylvester Path) is a small opportunity area located behind Mare Street on the edge of this character area. It is situated between Sylvester Road to the north and Wilton Way to the south. Its principle frontage faces Sylvester Path, a narrow pedestrian path linking the two roads. The area at the corner of Sylvester Road and Path is occupied by a single 4-storey building with spaces to both the side and rear. Adjacent is a single listed building in the centre of Sylvester Path. The southern portion of the site is occupied by a modern warehouse building, which presents a visually poor elevation onto Wilton Way. The key site constraints include the listed building which must be retained and respected, the requirements of the existing users and tight the relationship between the site frontage and the existing buildings/occupiers on the east side of Sylvester Path. The proposal shows a perimeter development to define the edges of the site and a well designed ground floor would offer interest and variety for the pedestrian. Doors and windows would be arranged to address the adjacent spaces so as to provide overlooking. The buildings would contain a mix of employment and residential uses. Building heights would generally be no higher than 3 storeys, reflecting the immediate built context and height-to-width ratio of this pedestrian way. A taller accent could potentially be located at the southern end of the site onto Wilton Way opposite the Town Hall.

124

Opportunity Site G1 Hackney Lanes Site Area: 1390 sqm Proposed Building Footprint: 800 sqm Proposed Building Height: 3 storeys, potential for minor 4 storey accent Proposed Use: Mixed, office /commercial and residential combined.

Figure 9.26 Hackney Lanes opportunity site

Well defined frontage with active ground floor uses Listed Building retained

Site G

Building heights 3 storeys maximum Mixed employment and residential uses Potential entrance to internal courtyard

Figure 9.27 Indicative schematic of Hackney Lanes opportunity site

125

9.9 Character Area 08: Kenmure Triangle 9.9.1 Existing features to be respected / enhanced / addressed This character area is another area of traditional streets contained within a triangle of land between the backs of development on Amhurst Road (south-west), the Narrow Way (east) Dalston Lane (north). Development facing Dalston Lane comprises mostly pairs of attractive traditional villas. Internal streets are fronted by terraced housing. Unusually, the area also contains an irregular shaped backland area (Kenmure Yard) that has been developed as an infill housing development. Generally a quiet residential area (although Dalston Lane is a busy thoroughfare), Kenmure Road and Brett Road form secondary pedestrian routes between Amhurst Road and the Narrow Way. Key positive characteristics to be respected: • Moderate building heights (typically 2 storey, but up to 4 storeys in places). • Good quality traditional architectural styles, with short front gardens, bay windows and architectural detail. • Good connections between the Narrow Way and Amhurst Road. Existing negative characteristics that should be addressed include: • Some low grade buildings with potential occasional infill or replacement.

Figure 9.28: Character Area 08: Kenmure Triangle

• Low grade streetscape on connecting roads.

A street of traditional housing in Gould Terrace

126

Kenmure Yard, backland development surrounded by traditional housing

Policy/Design Principles

9.4 Proposals for Character Area 08

9.9 Kenmure Triangle 1. Character: Retain the traditional residential character and appearance of these streets.

It is envisaged that the majority of this character area will remain unchanged with the exception of very occasional minor infill or replacement buildings in specific locations.

2 Building Lines: Building line should follow those of the established street pattern. 3. Grain: Frontages should create a fine grain character, reflecting the existing context. 4. Land Uses: Predominantly residential, although low-key uses compatible with a residential environment could be suitable.

The principal areas of changes are likely to be associated with selective environmental enhancement of the public realm, primarily Kenmure Road and Brett Road which serve to line the northern part of the Narrow Way with Amhurst Road and provide potentially useful pedestrian links to both Hackney Central and Hackney Downs railway stations.

5. Building Heights: Appropriate building heights in this area are to be informed by the existing built context (typically 2-3 storeys depending on the location, although up to 5 storeys on Brett Road). 6. Frontages: Windows should be arranged to overlook public streets and spaces. 7. Residential Parking: Retain on-street parking 8. Retained Buildings: Existing buildings that make a positive contribution to the character appearance of this area should be retained and refurbished in the first instance, rather than demolished and replaced.

Enhanced public realm on connecting streets

Improve crossings at key junctions

Figure 9.29: Indicative schematic of Kenmure Triangle opportunity site

127

9.10 Character Area 09: Horton Road 9.10.1 Existing features to be respected / enhanced / addressed This area is a small contained backland site located west of the railway and situated between Reading Lane to the south and Wilton Way to the north. A long narrow site, the land is largely utilised for residential parking by occupants of properties immediately to the west along Horton Road. The Reading Lane frontage is currently defined by a vacant two-storey building of relatively simple but attractive appearance. The relationship of the site to nearby residential properties and the proximity of the site to the adjacent railway will be important considerations, as will the accommodation of existing vehicle parking arrangements. The railway embankment contains mature vegetation and a number of mature trees are also present within the site. Key positive characteristics to be respected: • Medium building heights (typically 3-4 storeys). • Traditional architectural styles along Horton Road, together more modern flats of a sensitive height and scale to their context.

Existing negative characteristics that should be addressed include: • Close relationship with railway line. • Internal space is limited and required for residential parking. • Limited access opportunities. 9.10.2 Proposals for Character Area 09 It is envisaged that development would occupy the open area adjacent to the railway to create a mews style courtyard space behind the buildings that face onto Horton Road. The ground floor area would need to provide space for existing parking and possible additional parking associated with the new development. Opportunity Site F1 Great Eastern Infill Site Area: 4150 sqm Proposed Building Footprint: 1540 sqm Proposed Building Height: 2 storeys Proposed Use: Residential

• Simple but attractive vacant building on the Reading Lane frontage. • Mature trees within and along the edge of the site. • The amenity of adjacent residential properties.

Designs to avoid harming neighbour amenity

Residential development, parking at ground floor

Existing trees retained where possible Existing buildings converted to residential use

Building frontage on Reading lane

128

Figure 9.30 Indicative schematic of the Horton Road opportunity site

Policy/Design Principles 9.10 Horton Road 1. Character: A relatively isolated pocket of land containing a vacant building of moderate quality. This site has the potential to define its own character though with due regard to proximity and overlooking of adjacent residential. 2. Residential Amenity: The close relationship with the existing surrounding residential properties would require care in the design of any development on this site to avoid undue impacts on privacy and loss of light to existing residents. 3. Frontages: Minimal frontage potential given the narrow street edges of the site area. Potential to refurbish the existing building fronting onto Reading Lane. Internal building frontage to address issues of overlooking onto neighbouring properties. 4. Land Uses: Residential only uses are anticipated. 5. Building Heights: It is proposed that 2 storey development could be suitable in this location given the close relationship with existing neighbouring properties.

Figure 9.31 Proposal for Character Area 09 - Horton Road

6. Trees: Whilst it is recognised that clearing will need to take place, a number of significant and mature trees exist on the site and these should be considered within any proposal and retained where possible. 7. Railway: The development site runs adjacent to the railway line. High levels of noise/vibration insulation will be achieved to protect amenity. 8. Servicing and parking: Car free with the exception of mobility impaired and large familysized units or car club spaces. 9. Existing Buildings: The existing buildings on Reading Lane could potentially be converted for residential use, in preference to demolition and redevelopment

129

9.11 Character Area 10: Clarence Mews 9.11.1 Existing features to be respected / enhanced / addressed Clarence Mews forms a well defined character area in the north of this Masterplan area. It comprises a mixed range of buildings including, modern work spaces as well more traditional flats over garages and converted industrial buildings. Its narrow street creates an intimate character with almost no pavement buildings are accessed directly from the street. This eclectic range of mostly 1 and 2 storey buildings is of variable quality and despite the somewhat shabby quality of some parts of this street it retains a rather attractive and distinctive character. Key positive characteristics to be respected: • Low-rise buildings (typically1-2 storeys). • Varied building styles from very modern to traditional industrial buildings. • Narrow street width with almost no pavement. Buildings accessed direct from the street.

Existing negative characteristics that should be addressed include: • Poor quality buildings or poorly maintained buildings. • Some unsightly gaps sites/vacant plots. • Some dead frontages. • Low grade streetscape. 9.11.2 Proposals for Character Area 10 No specific proposals are identified for this area as no major sites are contained in this character area. However, much scope exists for improvement and interventions should address occasional gap sites, derelict buildings and improvements to the less successful western side of the street. Streetscape improvement measures, including a new high quality shared surface treatment that is consistent along the length of the street. Potential of tree planting along one side of the street would also enhance its character and appearance.

• Mixed uses including residential and small scale work spaces.

A modern work space development in Clarence Mews.

130

Low grade single storey buildings on the west side of the road.

Policy/Design Principles 9.11 Clarence Mews 1. Character: Potential to reinforce and improve the traditional narrow Mews street character. 2. Interventions: Gap sites and unsightly derelict or under used buildings could be redeveloped to improve the quality and consistency and of the streetscence. 3. Building heights: Buildings generally between 12 storeys (exceptionally occasional 2.5 - 3 storeys in suitable locations). 4. Maintenance: Facelift lift improvements and general maintenan ce where required. 5. Streetscape: General improvement of the streetscape surfaces to provide a unifying treatment. Potential for street tree planting on one side of the road. 6. Uses: Mixed small scale employment and residential. Figure 9.32: Character Area 10 - Clarence Mews

7. Frontages: Where possible remove dead frontages and introduce active/semi-active frontages to enliven the streetscene and increase overlooking. 8. Parking: On-street parking. Minimum residential commercial parking provision.

Figure 9.33 Schematic of Clarence Mews Character Area

131

9.12 Character Area 11: Clarence Road 9.12.1 Existing features to be respected / enhanced / addressed

• Mixed residential and local retail uses intermingled along the street.

This area comprises one of the direct linkages into the principal Mare Street axis from the north and comprises a retail area opposite the Pembury Estate to the west side of this area. The southern end of Clarence Road at the junction with Lower Clapton / Mare Street is weak with a poor development edge defining either side. Parking dominates the eastern side of the street and would benefit from intermittent tree planting. Retail activity is very much secondary in nature with a more local feel. Connections west into the Pembury Estate are poor and reinforce the north south linearity of the route.

Existing negative characteristics that should be addressed include: • Some unkempt poorly maintained buildings.

Intervention will focus on upgrading shop fronts, signage and a new streetscape palette that links with Mare Street. Importantly the junction with Lower Clapton/Mare Street will require pedestrian improvements and would take into account the underused land at the south east corner of the Pembury Estate. Key positive characteristics to be respected: • Medium building heights along the east side of the road (typically 2-3 storeys). • Traditional architectural styles, although somewhat plain and austere, with back edge of pavement development.

Clarence Road is enclosed to the east and open on its west side.

132

• Lack of street trees/greenery on east side of the road. • Car parking dominates the east side of the street. • The west side of the street is poorly enclosed due to the open design of the Pembury Estate. 9.12.2 Proposals for Character Area 11 No specific proposals are identified for this area as no major sites are contained in this character area. However, some scope exists for improvement of the physical environment and building fabric. It is envisaged that streetscape improvement measures, could include enhanced surface treatments in certain locations and possible tree planting along the east side of the street to help mitigate against the visual impact of dominant onstreet parking.

Secondary retail uses and on-street parking on Clarence Road

Policy/Design Principles 9.12 Clarence Road 1. Character: Peripheral retail street with specialist and local shops intermingled with residential development. 2. Interventions: Gap sites and unsightly derelict or under used buildings could be redeveloped to improve the quality and consistency and of the streetscence. 3. Building heights: Potential to increase building heights from to 2 to 3 or 4 storeys, to better enclose this broad street. 4. Maintenance: Building maintenance and shop front ‘facelift lift’ improvements. 5. Streetscape: General improvement of the streetscape surfaces targeted at key locations. Potential for street tree planting on the east side of the road. Figure 9.34: Character Area 11 - Clarence Road

6. Uses: Mixed small scale retail and residential between and above shops. 7. Frontages: Retain active shop frontages to enliven the streetscene. 8. Parking: Reduce the visual dominance of on street parking with potential planting of street trees on the east side of the street.

Figure 9.33 Schematic of Clarence Road Character Area

133

9.13 Character Area 12: Residential Estates 9.13.1 Existing features to be respected / enhanced / addressed Two post-war housing estates comprise this area - the Trelawney Estate to the south-east and the Marcon Estate to the north-west, plus a small section of the Pembury Estate (just north of the Masterplan area). These estate layouts contrast strongly with the traditional streets found in other parts of this area. Blocks of flats are mainly inward looking and arranged in regular patterns with large open spaces between buildings. Estates are generally no-through routes with roads arranged in cul-de-sacs. Existing characteristics that should be addressed include: • Poor connectivity and relationship with adjoining areas. • Low grade streetscape and poor legibility. • Indifferent architectural appearance. • Under used general amenity space. • Back boundaries fronting onto public space. 9.13.2 Proposals for Character Area 12 No specific proposals are identified for this area However, some scope exists for improvement of the physical environment. Masterplan intervention is focused on improvement to local linkages and a range of public realm enhancement measures to improve, legibility, permeability and safety. Two key through-routes could be enhanced through the Trelawney Estate connecting north-south. The Marcon Estate is a cul-de-sac area by virtue of the bounding railway

Trelawney Estate from Paragon Road

134

lines to the west and south. As a result the estate only serves local resident access and therefore intervention will focus on improving ‘back-to-front’ issues and safety/overlooking and landscaping of local spaces/car parks. The area of the Pembury Estate within the Masterplan boundary is currently vacant and it is anticipated that this will be redeveloped, primarily for housing. Schemes should be considered holistically together with proposals for improvements to the Pembury Road junction to improve access and movement for pedestrians and enhance the quality of the pedestrian environment. In addition, there is an aspiration to transform two car parks on Dalston Lane into amenity space for the Pembury Estate (although these are located just outside the Masterplan boundary). The Marcon Estate has been identified as falling below the standard for decent homes. In order to be decent a home should be warm, weatherproof and have reasonably modern facilities. Such homes are an important element of any thriving, sustainable community. As the Marcon Estate falls below this standard the estate is not economically viable for renewal. It is recommended that aspirations for future changes to the estate are investigated as part of a separate piece of work (see ‘Aspirations‘ opposite).

Garage court on the Marcon Estate

Aspirations: 1. Potential redevelopment of the Marcon Estate and re-cater for residential units. 2. Redevelopment of the Marcon Estate and Aspland Estate comprehensively and re-cater for residential units. 3. Transform two car parks on the Pembury Estate (adjacent to Dalston Lane) into amenity space for the Pembury Estate. Policy/Design Principles 9.13 Residential Estates 1. Character: Modern residential estate but enhanced where opportunities allow in term of its interface with the public realm and surrounding areas.

Figure 9.36: Character Area 12 - Residential Estates

2. Streetscape: General improvement of the streetscape surfaces targeted at key routes. Potential for street tree planting on Paragon Road. 3. Frontages: Address poor relationship with fronts and backs where walls and fences create dead space adjacent to the public realm. 4. Legibility: Seek enhancements to the legibility of these areas, primarily focussed on leading people through key routes towards important locations such as the town centre or stations.

Figure 9.38 Indicative schematic of the Marcon Estate

5. Development on the Pembury Estate: Proposals for development of the vacant site on the Pembury Estate should include measures for the enhancement of the pedestrian environment at the Pembury Road/Dalston Lane Junction in terms of access, movement and the quality of the public realm.

Figure 9.39 Indicative schematic of the Trelawney Estate

135

PART IV - MOVING FORWARD This section puts forward an overall approach to implementing this project.

10 Delivery and Implementation 10.1 Introduction The implementation strategy is design to support the planning and delivery of the masterplan. While this is not a detailed implementation strategy for specific projects, it has been informed by market realities and distinguishes between development that is likely to be procured through active intervention and that which will primarily depend on passive measures such as development control requirements and restrictions. The implementation strategy aims to be clear about what active public sector intervention is necessary to achieve it and is mindful of both the management and financial constraints which apply. Clearly it is neither possible or desirable to achieve everything proposed at once and therefore a phased approach is suggested. The following general principles would apply: Phase 1 development will; • Have the highest positive impact on the viability and impact of later phases; • Require re-development of the bus garage into a basement facility; and, • Can be delivered through private sector development or using existing or • accessible budgets. Phase 2 development will; • Depend on viability and delivery by the private sector on the completion of early phases; and, • Require public funds that need to be planned for some years in advance. Phase 3 development will; • Require change in market conditions (e.g. Improvements in viability dependent on medium term market trends); and, • Require public funding that either needs to be bid for or is not covered by existing mainstream budgets and thus cannot be relied upon within proper implementation planning.

136

Issues of financial viability, timing and risk are intimately related, but deliverability and viability are not fixed hurdles and can be lowered by assuming longer time frames, projecting values, and (to a lesser extent) possible changes in the financing system. The ownership of the sites across the masterplan area is key to developing a strategy for implementation of the masterplan. Within the Hackney Central masterplan area there are very limited sites owned by the Council where an increase in site value could be achieved from the proposed development. Whilst this capital value increase can be realised through site disposal to generate funds to pay for, say, public realm works it would not cover all the costs of the works identified. It will therefore be necessary for the Council to seek ways of generating funding for the capital works suggested in this masterplan. 10.2 Delivery Constraints and Opportunities There are four main delivery opportunities/strengths • The potential to meet new housing growth requirements and housing needs demand through proposed developments; • The potential to enhance the town centre’s range of facilities and retail provision, meeting part of the anticipated retail demand in the borough’s Retail strategy; • The potential for redevelopment of the bus garage and the Tesco site in the shortmedium term present a major opportunity for comprehensive change; and, • Capitalise on planned enhancements and the reopening of Hackney Central rail station. There are five main delivery constraints: • Funding for public realm and other capital works will not be deliverable through development values from the Council-owned sites alone; • LBH have limited capital funds to deploy for site assembly, though CPO acquisition could be considered;

• Potential uncertainty over demand in the current market; • The majority of opportunity sites are in private ownership/control and therefore timescales are uncertain and generating value limited to agreements, planning obligations and potential Section 106 terms. • Improvements to the pedestrian environment along Narrow Way are dependent upon wider area traffic modelling and agreement with TfL and bus operators; The implementation strategy addresses the following issues: • Uses the masterplan as a mechanism to avoid inappropriate development in the town centre; • Extracting value to pay for public realm enhancements; • Focusing on well defined development opportunity sites; • Looking to the ‘bigger picture’ where each opportunity area contributes to overall comprehensive change, shifting the character and image of the quality of the town centre; • Maximising development value; and, • By introducing CPO in the longer term, securing development value subject to funding. 10.3 Responding to the Market One objective of regeneration is to change the economics of investing. Accordingly, it is important to look at the long term effect of foreseeable movement in values and costs on land prices and viability. The potential increases in the land value across the various opportunity sites were reviewed providing an indication of the deliverability of the masterplan. However, property and land values (and therefore viability) are highly sensitive to relatively minor changes and since estimates of cost at this stage are limited and the value of development can differ depending on the outlook of a developer, a large margin of error has to be accepted and built into the implementation strategy. However, over time, this margin is likely to reduce, as cost and value data for each of the developments progress.

may take the lead in developing proposals, finding potential developers and packaging the site for a comprehensive development. 10.5 Private Sites On privately owned sites the council will have less influence but can work to demonstrate to the land owners the potential of the site within the masterplan vision. This may extend to assisting in the preparation of development briefs (for example on the site known as the ‘Gibbons site’ (B1) and providing contacts and links to interested parties. This development assistance would help in the sequencing of the development of certain key sites such as the Station Plaza/Amhurst Gateway. Assisting with the realisation of development on private sites will also help in generating funds for other works via agreements such as S106. Delivering the Public Realm Enhancements As described above, the increase in site value can be used as a way of generating funds to provide for public realm improvements. The provision of all the works identified in the masterplan vision is dependant to a large extent on all of the sites being developed. This may not, however, be possible as most sites are privately owned and so the development decision rests with the land owners. Therefore, what needs to be reviewed are the following: • Priority – Which of the public realm works more important than others. By identifying key public realm projects, these may receive early focus of investment; • Scope – The masterplan vision identifies public realm works that may be on privately owned sites. Aspects of these works may therefore be provided as part of the site (re)development;

10.4 Council Ownership

This is particularly relevant for the Tesco site where a public open space element (i.e. new pedestrian route) is on privately owned land. The scope of provision by the developer needs to be clearly understood so that works undertaken by the Council and works undertaken by the private sector may be apportioned.

Where the council owns a site outright, the Council has control over its development and timing. This could be used as a kick-start scheme to fund early works. At site E1, for example, the Council

Similarly, the timing of the works on key sites needs to be understood in relation to the sequencing of the development of the other public realm works. Where a significant residual value is being generated then a 137

sizeable contribution via S106 agreements could be made to fund other projects. 10.6 Funding The type and scale of physical transformation promoted through the masterplan requires significant investment. It is understood that public sector funding is relatively limited and may need to be generated first before they can be used. The Councils can play an active role in the following ways: • Through use of their statutory powers; • Through releasing value through change of land from employment to residential use on brownfield sites; • Through land acquisition and CPO powers; • Through planning contributions; and, • Through application of their own funds or use of their land assets. A key objective is to ensure that any change of use to residential must provide a wider benefit for the local area, such as public realm improvements, access infrastructure or support for the creation of employment opportunities either indirectly or directly (i.e. the value of the residential development is used to cross fund employment opportunities). As far as any potential CPO is concerned, support may be required from the Councils’ own resources for a rolling programme of land acquisition and disposal, on the basis that initial investment would be returned from the proceeds of disposal after change of use. Another useful power is contained in Section 215 of the Town and Country Planning Act 1990, which empowers Councils to require proper maintenance of (privately owned) land. This provides a useful way of reducing apparent dereliction and indirectly encouraging development. In some cases, in particular at project level, there might be scope to involve other delivery partners, such as organisations involved in providing affordable housing without grant. While Registered Social Landlords (RSLs) will have a key role both as purchasers of affordable housing and in some cases, as developers in their own right, access to Housing Corporation and loan funding will be crucial. This will usually be available where the Housing Corporation can see clear added value 138

from their investment; maximised by careful forward planning of calls on their resources and the creation of an appropriate framework for planning gain contributions. Planning gain will also be a major tool in the regeneration process and will mainly arise in situations in which residential use is proposed. Complicated and protracted Section 106 negotiations are a barrier to investment, so a simple and transparent regime is required. In procedural terms the scope is defined by ODPM Circular 05/2005. In some situations the potential will be limited by the need to allow the developer to achieve an adequate reward after covering the cost of preparing and remediating the site. Marketing for Hackney Central’s town centre as an expanding, attractive and vibrant town centre should consider: • Promoting the area as friendly for developers/ investors with clear steps for planning process; • Promoting the area as a great place to live and work; and, • Partnership working with local providers / labour market to attract incoming employers. 10.7 Phasing Delivery of regeneration through the Hackney Central masterplan SPD will be progressed in a phased manner over a 14 year timescale to 2021 Investment required for infrastructure, station refurbishments and so on will influence timescales. Phases should aim to be complete in their own right and serve as catalysts for successive phases. Phasing must be considered in both physical and funding terms. Key phasing principles in terms of land use include: • Retail: Short term – to establish new Tesco store and other associated retail with the proposed development. Amhurst Gateway (Gibbons site) may also occur in the short term along with station refurbishment. Other retail developments (e.g. The Narrow Way gate – northern end of the Narrow Way) would fall in the medium term. • Offices/employment : Limited employment/ office provision. Short term – bus garage redevelopment to enable new development on current garage site, including new office space.

New office and mixed use scheme at Hackney Yards • Residential: Range of projects that include both residential only and mixed use. Short term would include the Tesco mixed use scheme, Amhurst Gateway and bus garage site redevelopment. Medium and long term – The Rectory, Horton Road, Hackney Lanes and Yards, Morning Lane. Key phasing principles in terms of development opportunity areas include: • Tesco: Short term, at pre-application stage with LBH; • Railway Arches (new pedestrian access): Short term and linked to Tesco development; • Bus garage: Short to medium term – dependent upon agreements with Arriva and TfL. Linked to arches access and new Bohemia Place retail and public realm works; • Amhurst Gateway / Gibbons site: Short term linked to Hackney Central Station refurbishment and opening of the station itself; • Hackney Central station: Short term – TfL programme • Narrow Way Gate: Medium term – requires • The Rectory: Medium to long term – requires relocation of Learning Trust and Scout Hall facilities; • Morning Lane (south side): Medium term • Hackney Lanes: Medium to long term • Hackney Yards: Short to medium term • Horton Road: Medium term In broad terms the phasing sequence will be: Phase 1 Short term 2008 – 2012. Initial priorities should be focused on: - Site identification and disposals of Council owned sites suitable for private development (Site E1 south of Reading Lane and car park site within the Amhurst Gateway site area); - Initial ‘quick wins’ in terms of small scale public realm improvements; - Initial development brief preparation for discussion with site owners; - Sites already in the ‘pipeline or at pre-application stage (e.g. Tesco) - Commencement on site of advanced development schemes with capturing of increase value via S106 or other agreements - First major public realm works in conjunction with early private developments; and, - Site assembly discussions.

Phase 2 Medium term 2013 – 2017. Initial priorities should be focused on: • Commencement of sites developed from briefs previously prepared; • Site assembly implementation following agreed joint development schemes; • Effect on local market of initial development schemes starting; and, • Preparation of schemes based on improved local market. Phase 3 Long term 2018 – 2021 and beyond. Initial priorities should be focused on: • Private scheme development in improved local market 10.8 Risks In order to develop a sound delivery strategy for the masterplan, the risks associated with the redevelopment of the sites are identified below: Private site owners not willing to develop schemes in the same format as the masterplan. Whilst the masterplan shows the possibilities for the sites where they are privately owned the decisions made regarding the sites are primarily the land owners. Only through assistance in development preparation, partnership or direct intervention can the Council control the changes to the site. Timing of development: As noted above for privately owned sites, the development decision may not be in the Council’s control. Consequently, the timing of the progression of the masterplan is similarly affected. Dependencies and interlinking of projects: Whilst the financial analysis can be done on individual sites, often the linkage of developments within a small area of the masterplan area may facilitate or hinder the progression of the masterplan as a whole. Often these links are social, commercial and intrinsic to each other. By examining these links, further ways in which development projects can be brought forward or impediments to development removed can be investigated. However, due to their complex and often private nature this needs to be done on a case by case basis which would be the subject of further work.

139

10.9 Conclusion The high cost of the public realm works needs to be paid for from capturing some of the increase in value from developments on land owned by the Council and also on private developments. As outlined there are a number of mechanisms to carry this out and their effectiveness may vary. Where the council have the opportunity to control the asset of the site then this may be a significant source of funding. However, turning an asset into capital for funding involves the loss of the asset. This will need a decision by the Council with inevitable non-financial considerations. 10.10 Moving Forward The consultation draft Masterplan outlines scenarios for the future development of and improvements to Hackney Central Town Centre. Furthermore it explains how the scale, type and nature of development is underpinned by London Plan policies and GLA targets. The local community and key stakeholders will be consulted on the content of the Masterplan and their views and feedback on the options presented here will feed into the final Masterplan.

140

Risk

Likelihood

Impact

Avoidance

Mitigation

Difficulty in attracting retail-led development

Medium but will occur in line with other growth

Significant

Flexibility over type of retail. Alternative speculative office space

Retail to be phased

Onerous affordable housing quantums

Medium (new Mayoral targets)

Significant

Site–by-site sensitivity testing allowed

Range of levels of affordable

Difficulty in bringing forward land for development

High

Significant

Partnership working, prepare Briefs

Realistic phasing programme

Area-wide traffic modelling testing

Medium – may impact on Narrow Way

Moderate

Early completion of modelling work

Flexibility of transport proposals

Consented/pre-application stage sites implemented outside masterplan recommendations

Medium

Significant

Early discussion with land own- Require revision to ers pre-app schemes

Bus garage relocation un- Medium certain dependent upon TfL/Arriva etc.

Moderate

Technical testing to indicate viability / mtgs with Arriva etc.

Alternative site development options

Excessive planning requirements reduce viability

Significant

Detailed evaluation of schemes to test thresholds

Town-wide regeneration to distribute cost of public realm works

High

Table 10.1 Risks Assessments

141

APPENDIX A - RELEVANT LONDON PLAN OBJECTIVES Relationship to the London Plan The Masterplan vision for Hackney will be realised by adherence to the 5 key ‘themes’ which underpin the approach to the masterplan. The Hackney Central Masterplan will be Interim Planning Guidance and the policies of the London Plan (2008) are closely associated with these themes. The table identifies the principal areas of overlap between the five key themes and the policies contained within the London Plan (2008).

142

Relationship of London Plan to Hackney Central Masterplan

Masterplan Themes

Relevant London Plan Policy

Theme 1: Theme 2: Promoting high Enhancing the quality urban public realm design for Hackney Central

Theme 3: Ensuring a functional town centre for living working and shopping

Theme 4: Establishing a coherent and attractive movement network

Theme 5: Promoting forward thinking sustainable regeneration strategies

l.1 Mayors Objectives

Уm m

m У

m У

m У

m У

2A.1 Sustainability criteria

m У

m У

m У

m У

m У

m У

m У

m У

m У

m У

m У

m У

m У

2A.7 Areas for regeneration 2A.8 Town centres

m У

3A.2 Borough housing target

m У

3A.6 Quality of housing provision

m У

3A10 Negotiating affordable housing in individual private residential and mixeduse scheme

m У

3B.1 Developing London’s economy

m У

3B.2 Office demand and supply

m

3B.3 Mixed use development

У

У m

3C2 Matching development to transport capacity

У m

m У

3C.19 Local transport public realm enhancements 3D1 Supporting Town Centres

m У

m У

m У

m У

m У

m У

m У

m

У

m

m У

m У

m У

3C.1 Integrating transport and development

3C.3 Sustainable transport in London

m У

m У

У m

У m

У

У m

m У

m У

m У

m У

m У

m У

m У

m У

143

Masterplan Themes

Relevant London Plan Policy

Theme 1: Theme 2: Promoting high Enhancing the quality urban public realm design for Hackney Central

Theme 3: Ensuring a functional town centre for living working and shopping

Theme 4: Establishing a coherent and attractive movement network

3D.2 Town Centre Development

m

m

m

3D.3 Maintaining and improving retail facilities

m

m

m

3D.4 Development and promotion of the arts and culture

m

m

m

m

m

m

m

m

m

3D.8 Realising the value of open space and green infrastructure 4A.1 Tackling climate change

m

4A.2 Mitigating climate change

m

4A.4 Energy assessment

m

4B.1 Design principles for a compact city

m

4B.2 Promoting world class architecture and design

m

4B.3 Enhancing the quality of the public realm

m

4B.5 Creating an inclusive environment 4B.6 Safety, Security and fire protection

m

m

4A.3 Sustainable design and construction

144

Theme 5: Promoting forward thinking sustainable regeneration strategies

m

m

m

m

m

m

m

m

m

m

m

m

m

Masterplan Themes

Relevant London Plan Policy

Theme 1: Theme 2: Promoting high Enhancing the quality urban public realm design for Hackney Central

Theme 3: Ensuring a functional town centre for living working and shopping

Theme 4: Establishing a coherent and attractive movement network

Theme 5: Promoting forward thinking sustainable regeneration strategies

4B.7 Respect local context and communities

m

m

m

4B.9 Tall Buildings - Location

m

m

m

4B.10 Large scale buildings - design and impact

m

m

m

m

4B.12 Heritage conservation

m

m

m

m

m

m

m

m

m

m

m

5B.1 The Strategic Priorities for North London

m

m

m

m

m

6A.2 Working in partnership

m

m

m

m

m

6A.3 Promoting development

m

m

m

m

m

6A.9 Working with Stakeholders

m

m

m

m

m

m

m

m

m

m

4B.13 Historic conservation - led regeneration 5A.1 Sub-Regional implementation framework

6A.10 Coomplementary strategies

145

APPENDIX B - TECHNICAL ENERGY TABLES

Relationship to the London Plan The Masterplan vision for Hackney will be realised by adherence to the 5 key ‘themes’ which underpin the approach to the masterplan. The Hackney Central Masterplan will be Interim Planning Guidance and the policies of the London Plan (2008) are closely associated with these themes. The table identifies the principal areas of overlap between the five key themes and the policies contained within the London Plan (2008).

146

147