Sutton Town Centre Area Action Plan

DPD3 Sutton Town Centre colour report cover A3.qxd

07/04/2009

09:49

Page 1

London Borough of Sutton Local Development Framework

3

DPD

Development Plan Document

Sutton Town Centre Area Action Plan Preferred Options Consultation Draft

DARREN RICHARDS EXECUTIVE HEAD Planning and Transportation Jeff Wilson Head of Strategic Planning London Borough of Sutton Environment and Leisure 24 Denmark Road Carshalton SM5 2JG Printed on recycled paper - this paper can be recycled

April 2009

London Borough of Sutton Local Development Framework

Draft Development Plan Document

Sutton Town Centre Area Action Plan: Preferred Options Report for Public Consultation

Planning and Transportation Environment and Leisure April 2009

Consultation Arrangements 1.

The period for consultation and making comments on the Sutton Town Centre Area Action Plan Preferred Options Document is six weeks, from 22 April 2009 to 02 June 2009.

2.

Comments and suggestions are invited in relation to all matters in the Preferred Options Document and the supporting Sutton Town Centre Urban Design Guidelines. The response will help the Council clarify its priorities in relation to the future planning of Sutton town centre and will inform the final Area Action Plan to be submitted to the Government.

3.

The Council encourages responses to be made electronically. Representations should be made using the online consultation system at:http://consult.sutton.gov.uk or an email should be sent to: [email protected]

4.

If you do not have Internet access, comments can be made using the standard response form and faxed to: 020 8770 6298, or sent to: Jeff Wilson London Borough of Sutton Strategic Planning Environment and Leisure 24 Denmark Road Carshalton, SM5 2JG

5.

During the consultation period the following documents will be available: • Preferred Options Document; • Summary Leaflet; and • Sutton Town Centre Urban Design Guidelines: Consultation Draft. Copies of the documents can be downloaded from the Sutton Council website (http://consult.sutton.gov.uk), and are available at Public Libraries and the Civic Centre.

6.

An Urban Design Framework has been prepared for the Council by consultants Gillespies. This is an important background document that will be available to view at the Civic Centre, at Sutton Central Library and online at Sutton Council website (http://consult.sutton.gov.uk).

7.

The following programme of consultation has been arranged in accordance with the Council’s Statement of Community Involvement.

8.

A public exhibition will be held at the following locations: • Sutton Central Library Wednesday 22 April – Wednesday 6 May 2009 •

St Nicholas Shopping Centre Council officers will be present to discuss the document and answer any queries at the following times: − Thursday 7 May, 1pm – 7pm; − Friday 8 May, 11am – 4pm; and − Saturday 9 May, 11am – 4pm.

•

Sutton Central Library Monday 11 May – Tuesday 2 June 2009

___________________________________________________________________

9.

Two public meetings will be held as follows: • Presentation by Gillespies Consultants Monday 11 May 2009, 7.15pm for 7.30pm start Meeting Room 1, Civic Offices, Sutton •

Workshop in conjunction with Sutton Town Centre Partnership Friday 15 May 2009, 9.45am for 10am start Bar Room Bar, 67 High Street, Sutton Attendance at these meetings must be booked in advance. Please call 020 8770 6453 or email [email protected] to confirm your attendance. 10.

Other consultation measures to elicit responses include: • Notifying the Consultation Bodies specified in the Statement of Community Involvement; •

Publicising and promoting the document in Sutton Scene and via press releases, leaflets and posters; and

•

Briefing ‘Community Champions’ who have agreed to discuss the consultation within their groups.

11.

In dealing with the outcome of the consultations the Council will: (i) Acknowledge all responses made; (ii) Contact you if we need to clarify any points you have raised; (iii) Summarise all responses; (iv) Prepare a report to Councillors on all responses and set out the Council’s views on these, including recommendations on the way forward. This report will be made publicly available on the Council’s website (http://consult.sutton.gov.uk) and in local libraries; (v) Send you a letter telling you when and where the report on the outcome of this consultation is available.

12.

The London Borough of Sutton handles personal data in accordance with the Data Protection Act 1998. Please be aware that by providing your contact details you are consenting to your data being used in this way.

13.

If you want independent help and advice on this consultation document or any other planning matter you can contact Planning Aid for London on Tel: 020 7247 4900 or by email: [email protected].

14.

Useful general information on the planning system can be found on the Planning Portal (http://www.planningportal.gov.uk), which is managed by the Government’s Planning Inspectorate.

15.

For further information on where to find documents or if you wish to discuss any issues raised in this document or any of the consultation arrangements, please contact Claire Gray on 020 8770 6453 or Bob Gordon on 020 8770 6243.

___________________________________________________________________

List of Figures Fig. 1.1

Proposed Boundary of Sutton Town Centre Area Action Plan

6

Fig. 2.1

Strategic Context

8

Fig. 2.2

Existing Spaces and Linkages

10

Fig. 6.1

Public Realm Principles

44

Fig. 6.2

Transport Proposals

52

Fig. 7.1

Town Centre Quarters

55

Fig. 7.2

North Sutton

57

Fig. 7.3

Central Sutton

60 59

Fig. 7.4

Central West Sutton

63

Fig. 7.5

South Sutton

65

Fig. 7.6

Primary Shopping Area and Retail Frontages

67

Fig. 8.1

Proposed Development Opportunity Sites

71

___________________________________________________________________

Contents

ONE

TWO

Introduction

1

Gillespies’ Portrait of Sutton Town Centre in 2025

2

Background & Context

3

Introduction Preferred Options Document Area Action Plan Boundary Sutton’s Local Development Framework Structure of the Preferred Options Document

3 3 4 5 5

Spatial Portrait

7

Introduction Location and Sub-regional Context Physical Structure and Character Town Centre Functions and Land Uses THREE Outcomes from Previous Consultations

FOUR

FIVE

7 7 9 11 13

Introduction Issues & Options Consultation Recent Workshops Conclusions

13 13 15 16

Planning Policy Context

17

Introduction National Policy Guidance on Town Centres The London Plan Sutton’s Core Planning Strategy

17 17 18 19

Vision & Objectives

21

Introduction Sutton Town Centre Partnership’s Vision Preferred Policy Objectives Implementing the Policy Objectives

21 21 22 37

___________________________________________________________________

SIX

Proposals – Sustainable Built Development, Public Realm and Transport

39

Introduction Sustainable Built Development Improving the Public Realm Sustainable Transport

39 39 41 45

SEVEN Town Centre Quarters

EIGHT

NINE

53

Introduction Town Centre Quarters North Sutton – Village Quarter Central Sutton – Exchange Quarter Central West Sutton – Civic Quarter South Sutton – Station Quarter Primary Shopping Area and Retail Frontages

53 54 56 58 61 62 64

Development Proposals – Opportunity Sites

69

Introduction North Sutton – Village Quarter Central Sutton – Exchange Quarter Central West Sutton – Civic Quarter South Sutton – Station Quarter Conclusions on Development Capacity

69 70 73 75 76 78

Implementing the Area Action Plan

83

Introduction Implementation through the Planning System A Pro-active Council Working in Partnership Monitoring and Review Further Research

83 83 84 85 86 86

Schedule of Development Opportunity Sites

89

___________________________________________________________________

Introduction 1.

The Sutton Town Centre Area Action Plan (AAP) will contain ambitious plans for the future of the town centre. It will set out the Council’s proposals for the scale and character of new development over the next 10-15 years.

2.

This Preferred Options Document marks the end of the second stage of plan preparation, following the Issues & Options consultation at the beginning of 2008. It identifies suitable sites for development and redevelopment and provides guidance that will assist in managing the future growth of the town centre in a sustainable manner. The document incorporates a strong urban design focus and proposes public realm improvements throughout the town centre.

3.

The urban design aspects of the AAP are drawn from a separate but supporting document, the Sutton Town Centre Urban Design Framework (UDF). This is the report produced, for the Council, by Gillespies Urban Design Consultants and it contains detailed ideas, maps, plans and 3-dimensional representations of how the town centre might develop over the next 15 years. The UDF has

influenced the AAP but its detailed contents do not necessarily reflect the views of the Council. 4.

In preparing their UDF, Gillespies have looked forward to 2025 and imagined what the town centre could look like if all possible sites were to be developed in accordance with their suggested urban design principles. The consultants’ verbal portrait of an ideal future town centre is quoted on the next page. This represents a positive and optimistic approach to the future planning of Sutton town centre that is reflected in the content of the Preferred Options Document. Visual representations using plans and a range of 3dimensional images are to be found in their separate UDF document.

5.

The detailed urban design guidelines and proposals of the UDF have been summarised in a third document, which is intended to be used as a material consideration in determining planning applications for town centre development. This is the Sutton Town Centre Urban Design Guidelines: Consultation Draft, which is published for consultation alongside the Preferred Options Document.

Sutton Town Centre Area Action Plan – Preferred Options Document

1

Gillespies’ Portrait of Sutton Town Centre in 2025 In 2025 Sutton Town Centre is now a thriving centre for the community, known for its leadership in environmental issues which is seen in its landmark eco buildings, excellent public transport accessibility, safe walking and cycling routes and its leafy green character. The theme of a sustainable and eco-friendly town centre is seen everywhere, not least in the variety of other transport choices available to residents, businesses and visitors and the way in which the impact of traffic has been dramatically reduced around the gyratory. The town centre has moved on, enhanced its image, identity, the quality of its public spaces and buildings, the strength of its economy and its competitiveness in relation to others. The heart of the centre is focused around the High Street with a mix of retailing, leisure and dining opportunities. The centre is now more rounded with activity and interest on its edges with better links into the central High Street. The centre is vibrant and full of culture with a new leisure and cultural quarter providing activity for all ages throughout the day and into the evening. Recent buildings are high quality, contemporary and boldly sustainable which has added to the towns’ special character. The focal point is the Town Square and Millennium Gardens which provide a meeting place for residents, shoppers and workers alike; they also play host to a variety of stalls, outdoor entertainers and events. The square also acts as a pedestrian friendly green link connecting into Manor Park and the new cultural quarter and completing a legible circuit of pleasant streets and spaces. Everything has been planned to be within easy walking distance of each other. The new Cultural Quarter has a revitalised Civic Centre complex with a new high quality public square and iconic architecture. The quarter is alive with cultural vibrancy and activity with a new library and learning centre, new SCOLA campus, community spaces, a theatre and an art gallery providing activity for all, especially families, throughout the day and into the evening. The Civic Square has become a focal point of the quarter with a mix of soft and hard landscaping including trees, bespoke seating and lighting. The area is used for a variety of activities including street theatre, street markets, events and outdoor dining. The Station Gateway area is a popular place to live and work attracting a wide variety of businesses and a new hotel. The area has been developed as a centre for business, creating a commercial urban quarter in Sutton Town Centre which is vibrant throughout the day and night. The urban village in the north of the centre provides a highly desirable location for Sutton’s up-and-coming entrepreneurs and town centre residents. A distinctive character has been created with independent and specialist stores with a revamped Zurich Place acting as a focal point for North Sutton. The specialist shops and local eateries complement the offer in the High Street. An improved Sutton Green provides a great place to stroll and relax amongst nature.

Sutton Town Centre Area Action Plan – Preferred Options Document

2

ONE

and to manage the future growth of the town centre in a sustainable manner. 1.3

Background & Context

A key feature of an AAP is its focus on implementation. The purpose of the Sutton Town Centre AAP, as outlined in the Council’s Local Development Scheme2, is to set out comprehensive proposals for the development of Sutton town centre, identifying opportunities for major redevelopment and major transport infrastructure changes. Its scope is wide, covering all planning issues that affect town centres.

Introduction

Preferred Options Document

1.1

The Sutton Town Centre Area Action Plan forms part of the Council’s Local Development Framework (LDF) under the new development plan system1. It is an Area Action Plan (AAP), which is a particular kind of Development Plan Document (DPD) intended to provide the detailed planning framework for areas where significant change or conservation is needed.

1.4

1.2

The Council considers that Sutton town centre is the most sustainable location for development in the Borough, and has the potential to meet a variety of development needs over the next 10-15 years. In view of this potential for growth, the town centre is an ideal subject for an AAP. The AAP will be used to identify suitable sites for development and redevelopment in the town centre

This Preferred Options Document marks the end of the second stage of AAP preparation. It follows the preparation of a first stage Issues & Options Report for consultation in January/February 2008. That document identified the key issues affecting Sutton town centre and the broad options available for managing and directing appropriate new development. The Preferred Options Document builds on this work and on the outcomes of the public consultation, suggesting in more detail where change and conservation should take place within the town centre and how new development can be used to enhance its character and function.

1.5

This document has been specifically prepared for the purpose of public consultation. The intention is to generate

1

Government guidance on the new system is set out in Planning Policy Statement 12 (Local Development Frameworks).

2

Originally published by the Council in July 2005.

Sutton Town Centre Area Action Plan – Preferred Options Document

3

debate about the future role and character of Sutton town centre, drawing on the findings and recommendations of a recent urban design study3 to pose questions about the form and scale of new development. It sets out the Council’s current thinking on the how the town centre could develop, change and improve. It is deliberately ambitious, looking ahead 15 years to demonstrate what can be achieved, given the right circumstances. It is also realistic, acknowledging the potential problems and constraints that may limit development options. Although the Preferred Options Document reflects the Council’s current thinking, it is not a draft plan. Before a final version of the AAP is prepared for submission to the Government, further work will be needed to test the practicality of the proposals.

planning requirements. This contrasts with areas outside the plan boundary where intensification will normally be expected to be in keeping with their predominantly residential character. 1.7

The plan boundary proposed in this consultation document is shown in Fig. 1.1. It has been proposed following discussion at a workshop organised for Members of the Council’s Planning Advisory Group (see 3.17). It is wider than the tightly drawn town centre boundary adopted in the 2003 Sutton Unitary Development Plan (UDP), incorporating additional areas to: • the south east (properties north of Cedar Road); • the east (Manor Park); • the north east (west of Lewis Road); • the north (Sutton Green and Vale Road); • the north west (Collingwood Estate and the bus garage); and • the west (some of the residential area adjoining St Nicholas Way, north of the Robin Hood School4; the residential area between St Nicholas Way and Robin Hood Lane, to the south and west of the St Nicholas MSCP; land to the north of the Gibson Road MSCP).

1.8

These additional areas are now proposed for inclusion within the area to be covered by the AAP because they meet one or more of the following conditions:

Area Action Plan Boundary 1.6

3

Area action plans are intended to cover areas where significant change or conservation is needed, and the plan boundary should reflect this. In Sutton town centre, change will be driven by higher density mixed-use development appropriate to its status as a Metropolitan Centre. The plan area should therefore include all those town centre sites where potential has been identified and where development is to be encouraged. It should also include other land where higher density mixed-use schemes would be favourably considered, subject to urban design and other

The Sutton Town Centre Urban Design Framework, 2009, prepared by Gillespies.

4

Including a small part of an ‘Area of Special Local Character’ – see 7.5.

Sutton Town Centre Area Action Plan – Preferred Options Document

4

•

•

•

•

•

They contain potential development sites (e.g. Beech Tree Place); They are closely linked to the town centre physically or functionally (e.g. Manor Park); They could be affected by possible changes to the gyratory road system (e.g. Lewis Road); They could benefit from better pedestrian linkages and environmental improvements (e.g. Collingwood Estate); and They would help create a ‘rounder’ town centre that reflects the plan’s objective of encouraging more activity close to the town centre core (e.g. land east of Robin Hood Lane).

Sutton’s Local Development Framework 1.9

Sutton’s Local Development Framework (LDF) will comprise three statutory Development Plan Documents (DPDs): • The Sutton Town Centre Area Action Plan provides a detailed planning framework for the town centre. It identifies policy areas and opportunity sites, and its focus is on implementation. The formal policies that apply to the town centre are to be contained in the other two DPDs, which should be read in conjunction with the AAP. • The Core Planning Strategy (CPS) sets out the long term spatial vision for the authority’s area and the strategic policies required to deliver that vision. Without being site specific, it identifies broad locations for

delivering the housing and other strategic development needs such as employment, retail, leisure, community, essential public services and transport development. The AAP must conform to the policies of the CPS. •

The Site Development Policies Document will identify development sites outside Sutton town centre. It will also contain detailed development control policies for the whole borough, including the town centre. It will refer, where appropriate, to more detailed policy guidance in the AAP.

Structure of the Preferred Options Document 1.10

The structure of the Preferred Options Document reflects the logic of the plan preparation process and the public consultation purpose of the current stage of AAP development. The early chapters set the scene, with a brief town centre overview (Ch 2), a summary of the outcomes from previous consultations (Ch 3) and the planning policy context (Ch 4). The town centre ‘vision’ is reiterated in Ch 5, in which a number of more detailed policy objectives are suggested as a basis for subsequent infrastructure proposals (Ch 6), policy guidance (Ch 7) and development site proposals (Ch 8). Finally, Chapter 9 explores how the proposals outlined in the Plan could be implemented and what mechanisms might be used in order to realise the vision and objectives.

Sutton Town Centre Area Action Plan – Preferred Options Document

5

AD RO ILL NH BE

Figure 1.1

AD D RO EA LLM HA

Proposed Boundary of Sutton Town Centre Area Action Plan

TO REN SOR BEN HILT ON GAR DEN S

Avond ale Court

BIS HO PS CL OS E

WO ODS IDE

24

BEN HILT ON GAR DEN S

UE EN A AV DR AN EX AL

26

DOV ERC OUR T LANE

SE ETCLO FLE BEN

PARSONS CLOSE

OA KH ILL

RO AD

THE

AD Y RO TOR REC

AD RO

HIGH STREE

T

N GREE

NS DEA

STANMO RE GARDEN S

ROA D

RO AD

UDP Boundary

D ROA

S EN RD GA

BRU NSW ICK ROA D

AD RO

E LAN

ON LT MI

EY SH BU

GE ARA VIC

AD RO

BRU NSW ICK

AD RO

R CE AU CH

OAKHILL ROAD

Proposed AAP Boundary

JENGAR CLOSE

AD RO

OAKHILL

LEWIS

ON LT MI

ROA D

AD Y RO TOR REC

HEY BUS

RO AD

ROA D

Church

AD E RO AG AR VIC

W OO D

BE NF LEE T CL OS E

Family Catholic D TO ROA REN SOR

R CE AU CH

CLO SE

BE NH ILL

HUNTING GATE MEWS

RO AD

165

VINE

D K ROA ROO PYLB

S EN RD R GA CE AU CH

ELG IN RO AD

S EN RD GA

TH OR ILW CH

STA YTO N RO AD

AD E RO VAL

16

Sutton Garage GRO VE

(LT)

61

CLOSE

9 55

57

57a

Compton Court

1 to 10

BELSIZE GARDENS

ROAD

AD RO

MOUNT

KESWIC K CLOSE

THICKET ROAD

BERY ROSE

GODSTONE ROAD

BENH ILL WOOD

ALVIA GARDE NS

BRUNSWICK ROAD

AD N RO OW CR

49

EY SH BU

RO AD

HIGH STREET

CO LL INGW OO D

MILFORDGROVE

CRES SING HAM

DUCHESS GLENA

ENS GARD

THICKET CRESCENT

D

L'S ROA

MARSHAL

IVYDEN ECLOSE

32 33 43

E OS S CL NG WI

New lyn Hou se

MONTPELIER ROAD

OWLEY THR

ELM VE GRO

AD RO

AVON

NUE AVE HILL BEN

WAY

AH UL BE

STREET HIGH

D ROA

AD N RO OW CR

AD RO

Den ewo od Hou se

Y AS WA HOL ST NIC

D N ROA NDO BRA

EY DN SY

COX WIL

BEN

HILL

AVE

CLOSE

NUE

D S ROA GES BUR

CONSTANCE ROAD 93

LITCHFIELD ROAD

NURSERY ROAD

AD RO

NUE AVE HILL BEN

D ROA

FORD EEN GR

AD RO OFT RNCR THO

D AR CH OR

D ROA

WICK WAR

STREET

D ROAD NFOR GREE

CE REN CLA

LENHAM ROAD

D ROA

HIGH

DON HAD

AD P RO AM CH AU BE

AD RO

THE BROADWAY LOWER ROAD MANOR

E OR PLAC MAN

D GE ROA LOD

N ROAD MASO

AD E RO YD CL

LANE

32

OR LANE MAN

WILLIAM ROAD

PLACE

ON ROAD ERST PALM

WAY

D ROA

OWLEY

RT COU

HAM LEN

ALE TING NIGH

Sutton Grammar School For Boys

THR

and Cinemas

D ROA

D ROA

AD RO

D N ROA EAR ATH STR

Multistorey Car Park Multistorey Car Park

TLE MYR

LODGE

D K ROA WIC WAR

CE REN CLA

OD WO LLING CO

ntre as Ce Nichol Saint

Robin Hood Junior School

LIND D ROA

ROBIN HOOD LANE SE CLO

Manor Park Primary School

GREYHOU

VERNON ROAD

ND ROAD

t Stree

LINS MAR

SHOTT CLOSE

High

ET RE T ST ES W

1

LL S WA MA THO

N HOOD ROBI

LANE

SE CLO

t h Stree Churc

NS SSE GOO SE CLO

ST

LAS WAY

SE E CLO HOP

ST NICHO

E E PLAC CH TRE BEE

Times

E E LAN NPIK TUR

R WSE CLO

S MEW

OURT FALC

D K ROA OR PAR MAN

NY ALBA

L WAY SEL RUS

E D LAN IN HOO ROB

D ROA

20

ES JAM

Square

Robin Hood Infants' School

E CLOS

TANA MON

S DEN GAR OP'S BISH

E PLAC

CL OS E

Thomas Wall Nursery School

St Nicholas House

CAMDEN ROAD

OLAS ST NICH

ROAD

LEY OW THR

SHERWOOD PARK ROAD

St Nicholas Church

Surrey House

TON ROAD CARSHAL

WAY

D EY ROA OWL THR

College of Liberal Arts

D ROA

S DEN GAR

N ROAD GIBSO

D ED ROA ALFR

DING REA

DEN CAM

D N ROA TER WES

HILL ROAD

HIGH

LANGLEY PARK ROAD

Library

STR

Trinity Methodist Church

EET

Civic Centre

T ALBER ROAD

LAND MOR

AD

N RO

ROAD

HALTO

CARS

CHEAM ROAD

PIT CHALK WAY

AM CHE

Sutton Baptist Church

D ROA

D ROA

EET STR

S K MEW BAN

HIGH

RN STE WE

SUTTON

COURT ROAD

AD RO

D E ROA ORM

RK N PA SUTTO

LD FIE ME HO

AD M RO EA CH

RK PA

D VE ROA GRO NOR CUM

D ROA

Girls

EET

AD RO

H STR

ES' JAM

HIG

ST

For School High Sutton

SE D CLO MEA TOR

Sutton Station

UE EN E AV OV GR

D VE ROA GRO

NT RA AD E QU TH

D GE ROA BRID

D ROA

LEY PARK LANG

1 to 8

rt ar Cou Ced

D ROA

D ROA

ROAD

ROAD

RAVE MULG

AR CED

BRIGHTON

VE GRO

26

W EL LE SL EY RO AD

E LAN

ROAD

ST 'S ROO GAR BEG

MU LG RA VE

RO

AD

EY LESL WEL

ON EAT

D ROA

ENS R GARD CEDA

GAN CADO T COUR AMBLE SIDE GARDENS

ROAD

N ROAD ALBIO

LEY ROAD STAN

RAVE MULG

ON ROAD OVERT

12

ISH END CAV

CO NW AY

D ROA

VE DRI

ER ROAD CEST WOR

24a

S DEN GAR

ISH END CAV

24b

LIE LES

ER ROAD CEST WOR

56a

Source: LB Sutton

11

S DEN GAR

D K ROA Y PAR GLE LAN

LIE LES

11

GRAN GE ROA D

8

D ROA

N

Copyright Ordnance Survey 2008 100008655X

6

TWO

Location and Sub-regional Context 2.3

Sutton town centre is the main centre in the Borough and one of four ‘Metropolitan Centres’ in South London, as defined in the London Plan6. It lies about 10 miles south of central London, 6 miles south east of Kingston and 5 miles west of Croydon. Its retail catchment area extends beyond the borough boundary and overlaps those of its competitors, especially Croydon and Kingston. Its location within the Borough and the sub-region is shown in Fig. 2.1.

2.4

The town centre is relatively wellconnected by road and rail, and public transport accessibility is relatively high7. The B2230 runs north-south, using the town centre gyratory system, crossing the A232 strategic east-west route. Together, these roads provide good connections to the A217 and other radial routes linking central London to the M25. There is direct rail access to London Victoria, London Bridge and Waterloo as well as to Croydon, Epsom and Wimbledon. The town centre is also served by 13 bus routes, providing links to all parts of the borough and beyond.

Spatial Portrait Introduction 2.1

2.2

This chapter provides a brief description of Sutton town centre and the challenges it faces. It sets a context for the policy objectives and development proposals that follow. A more detailed analysis of the key planning issues was included in the Issues & Options Report. That analysis has now been supplemented by the outcomes of a recent town centre land-use survey5 and by the urban design analysis mentioned in the Introduction. Sutton is an attractive and accessible town centre, with a wide range of shopping, employment and leisure activities, a vibrant evening economy and good public transport links. The commercial core is surrounded by longestablished residential areas. It is a transport hub and the most accessible location in the Borough.

5

The results of the survey are shown in the Report of Studies for the Core Planning Strategy, November 2008. The survey has also been used to prepare the Sutton Town Centre Health Check, 2008 (in preparation).

6

The others are Kingston, Croydon and Bromley. 7 PTAL rating 5 and 6a.

Sutton Town Centre Area Action Plan – Preferred Options Document

7

Figure 2.1

Strategic Context

GREATER LONDON Hounslow

Richmond Wimbledon Kingston

Croydon Sutton

Epsom

Reigate

Metropolitan Centre Major Centre

London Borough of Merton

Royal Borough of Kingston Upon Thames

A24

A217

ROSEHILL WORCESTER PARK

HACKBRIDGE

NORTH CHEAM

A232 SUTTON

CARSHALTON WALLINGTON

A24

Epsom and Ewell District Council (Surrey)

CHEAM

A232

London Borough of Croydon

A217

N

Copyright Ordnance Survey 2008 100008655X

Source: LB Sutton

Reigate and Banstead District Council (Surrey)

8

lacking conservation areas, there are a small number of listed buildings that should be protected.

Physical Structure and Character 2.5

2.6

Sutton town centre is characterised by its strong linear form and pronounced slope from south to north. The commercial core stretches for about a mile, between Sutton Green in the north and the Brighton Road Car Park in the south, and varies in character along this axis8. Eastwest connections between the town centre and its residential hinterland are not always welcoming and clear, lacking clear routes and landmarks. The traffic-dominated gyratory road system, parallel to the pedestrianised High Street on both sides, provides a barrier to east-west movements. The physical structure of the town centre is illustrated in Fig. 2.2, which shows its existing spaces, linkages and barriers to movement. It is broadly characterised by two types of public spaces: the central spine with hard landscape at its heart and green public spaces to the east, west and north of the High Street. The three main green spaces (Manor Park, Sutton Green and St Nicholas Churchyard) are on the edge of the centre, and the linkages between them are poor. Building frontages are of varying quality and there is a lack of active frontages along key vehicular routes and adjacent to some open spaces. The gyratory road network is motor vehicle dominated and a barrier to pedestrian movement. Although

2.7

The town centre is linked to a cycle route network, but cycle routes within the town centre are restricted and lack clarity. Car parks are conveniently located around the periphery. The railway station is the main transport interchange, but is not particularly well connected to bus routes. Buses use the gyratory roads and bus stops are conveniently located along them. There is no, one central bus interchange station within the town centre.

2.8

Overall, the town centre appears to perform well in terms of access for people with physical disabilities. However, the slope of the High Street does cause problems. The Shopmobility scheme is an asset, but concern has been expressed regarding difficulties accessing bus stops. Improved toilet facilities for severely disabled people are also needed.

8

Three broad character areas were identified in the Issues & Options Report, reflecting how the character of the town centre changes with location along the High Street.

Sutton Town Centre Area Action Plan – Preferred Options Document

9

Figure 2.2

Existing Spaces and Linkages Town Centre Plan Boundary Main Roads (Strategic Routes / London Distributor / Bus Priority) Borough Distributor Roads Pedestrian Links

IIIIIIIIII

Subway or bridge Link

IIIIIIII

Railway Main Bus Stops

IIIIIII

IIIII

P

Public Spaces

IIIII

IIIII

IIIII

IIIII

P

IIIII

IIIIIIIIIIII

IIIII

IIIIII

IIIIII

IIIII

IIIIII

IIIII

IIIII

IIII

II III IIII I I I II IIII II

IIIIIII

P

IIII

IIII IIIIII

II

IIII

P

III I

II

III IIII

II III

IIIIII

IIIIIIIIIIIIIIIIIII IIIIIIIIII

IIII

II IIIIII

Pedestrian streets and malls

IIIII

IIIII P

Main Visitor Car Parks Green Spaces

IIIII

IIIII

P

Barriers to Movement

IIIIIIII

IIIIIII

IIIIII-

P

II IIII

III

P

N Source: Based on Sutton Town Centre Urban Design Framework (Gillespies, February 2009)

Copyright Ordnance Survey 2008 100008655X

10

Town Centre Functions and Land Uses 2.9

In summer 2008, Council officers undertook a detailed land-use survey of the town centre’s commercial core9. The results show that the town centre contains approximately 424,000 sq m of commercial floorspace of which 40% is in Class A use10 and 34% is B1 office space. There are also a significant number of leisure11, community12 and supporting uses (such as car parks) within the centre. The survey illustrates how the different uses are distributed within the town centre. Overall, some 8.5% of town centre floorspace was vacant at the time of survey.

2.10

The survey identified 429 retail units in the town centre, covering the full range of A Class uses. Of these, 267 are A1 Retail covering 127,669 sq m gross floorspace. Around 79% of this space is comparison shopping, 13% is convenience shopping, 5% is service based (e.g. hairdressers) and just 3% is vacant. While there is a good cross section of High Street retailers, there is a perception that new retail units are needed of the right size and layout to meet modern retail needs.

2.11

In 2006, the Council commissioned Savills Hepher Dixon to carry out a Retail Assessment in the borough as an input into the preparation of the LDF, to inform decisions about retail policy and future site allocations. The main findings from the research were summarised in the Issues & Options Report. While Sutton’s retail catchment area covers much of South London and north Surrey, there is strong competition from the other Metropolitan Centres. Consequently, retail turnover in the Borough is much less than total retail expenditure by Borough residents. In particular, Sutton town centre was found to have a limited range of shopping facilities compared with competing centres, including Kingston and Croydon, and there is a high level of ‘leakage’ from the Borough to these centres. The study concluded that Sutton must improve its retail offer simply to maintain its position relative to competing centres13.

2.12

Retailing is one part of a wider town centre visitor offer, with food and drink uses occupying some 26,000 sq m of mainly ground floor space, supporting the retail function and forming the basis of a distinct evening economy. A concentration of bars, restaurants and nightclubs in the southern part of the High Street provides a focus for evening and night-time activity that caters mainly for the young. Other leisure uses, including a multi-screen cinema, theatre,

9

This is based on the Town Centre Boundary identified in the UDP (see Fig 1.1) 10 A1 Retail 30.1%; A2 Financial & Professional Services 3.7%; A3 Restaurants & Cafes 3.2%; A4 Drinking Establishments 2.6%; A5 Hot Food Take-Aways 0.3% 11 Including a cinema, theatre, bowling alley and nightclubs. 12 Such as community centres, schools, places of worship and health clinics.

13

See para 5.11, below, for the consultants’ assessment of future retail need.

Sutton Town Centre Area Action Plan – Preferred Options Document

11

areas of multiple deprivation within this residential catchment area14.

bowling alley and bingo hall, are located to the west of the High Street. 2.13

2.14

Employment is vital for the health of the town centre. People working in offices, shops and other workplaces contribute to vitality and prosperity, providing a significant daytime population that supports the centre’s shops, eating places and other services. Despite a number of closures over the past few years, Sutton retains over 140,000 sq m of office space, illustrating the importance of office employment to the local economy. Most of the floorspace is located above ground level in multi-storey office buildings throughout the town centre, with a concentration in the southern part. Vacancies account for 17% of all office space, much of which is located within under-utilised or empty office buildings that no longer meet occupier requirements. Of total town centre vacant floorspace, over half (52%) is vacant office space. The commercial centre has a growing residential population resulting mainly from the conversion or redevelopment of former office blocks. For example, the Aspects Tower in Throwley Road contains 169 apartments and the recently completed Lamborn Apartments in Sutton Park Road has added 104 units. Such developments illustrate the potential for a future increase in the town centre population. Over 22,000 people live within 10-minutes walk of the town centre, making use of local employment, shopping and leisure opportunities. There are

2.15

Town centres provide accessible locations for the provision of social and community facilities. However, Sutton town centre contains no major health or higher education establishments. The Plan boundary does include a primary school, surgeries, Sutton Library, Sutton College of Adult Education (SCOLA) and various places of worship and associated halls. The Secombe Theatre, Holiday Inn Hotel and other venues provide community spaces and meeting rooms available to local groups and the public. Together, these uses occupy a floor area of 20,655 sq m, representing 4% of the town centre floorspace. There is also a range of other community facilities nearby, outside the town centre boundary, including secondary schools and outdoor recreation facilities.

2.16

All the above issues are relevant to the preparation of the AAP. The analysis of issues provides a context for the identification of land use and development objectives in Chapter 5, below.

14

Sutton Central Ward is a local area of disadvantage with a Super Output Area that is in the 20% most deprived communities in the country.

Sutton Town Centre Area Action Plan – Preferred Options Document

12

THREE

the issues identified as a result, were set out in Section 4 of the Issues & Options Report.

Issues & Options Consultation 3.3

Consultation on the Issues & Options Report took place over a six week period between 2 January and 12 February 2008, and there were 84 respondents. A general consensus was evident in relation to many of the issues raised in the consultation document; for other issues, there was a divergence of views. The response is summarised in the following paragraphs, which also indicate how it influenced the preparation of the AAP.

3.4

There was strong support for the Town Centre Vision suggested by the Sutton Town Centre Partnership (STCP). This has been carried forward into the Preferred Options Document (Ch 5). There was also general support for the seven strategic objectives, which have been retained subject to minor amendments suggested by the STCP and by the Sutton & Merton Primary Care Trust (PCT).

3.5

Most respondents recognised that Sutton town centre is the most suitable location for future development in the borough due to its high level of accessibility. They supported the focus on retail and leisure, calling for an expansion of the Primary Shopping Area and for more independent stores (to differentiate the centre from its competitors), and for strategies to diversify the evening economy (to increase usage and reduce antisocial behaviour). They also supported more cultural and

Outcomes from Previous Consultations Introduction 3.1

3.2

The Council recognises the value of involving as many people as possible in planning for the future of Sutton town centre. The opinions and experiences of town centre residents, businesses and visitors provide important information to assist the preparation of the town centre plan. The Council’s adopted Statement of Community Involvement (SCI) sets out a framework for achieving community involvement in planning in Sutton. This section of the Preferred Options Document reviews the consultations carried out so far, and explains briefly how they have influenced the content of this document. The SCI emphasises the benefits of early community participation in the plan preparation process. Accordingly, in preparing the Issues & Options Report, a number of individuals and groups representing a range of town centre and borough interests were consulted. Details of this preliminary consultation, and of

Sutton Town Centre Area Action Plan – Preferred Options Document

13

some suggesting that too much reliance is being placed on the proposal to extend Tramlink into the town centre when no funds have been allocated for this project. The GLA confirmed that Transport for London (TfL) have no firm proposals for this project but supported the safeguarding of a route within the town centre. Of those who commented on the route options, most supported an alignment following the current town centre gyratory system.

community uses (especially those aimed at young people), including a sports centre and a ‘cultural hub’, and there was general support for high density housing. These aspirations are reflected in the detailed policy objectives set out in Ch 5. 3.6

3.7

3.8

The STCP emphasised the importance of maintaining employment and improving the quality of office space, in order to retain larger businesses and the benefits they bring to the daytime economy. The Partnership also supported provision of office space to serve small and medium size enterprises (SMEs) and encourage start-ups. It suggested that South Sutton should be promoted as an office quarter. There was general agreement from respondents that the town centre should not become a dormitory suburb, and this is reflected in objectives set out in Ch 5. A number of concerns were raised in relation to transport issues, especially the potential effect of new development on traffic congestion and the possible loss of public car parking spaces as a result of redevelopment. There was general support for improving public transport interchanges, providing secure cycle parking facilities and encouraging walking, especially by improving east-west links within the town centre. There were conflicting views regarding the ‘shared use’ of town centre space with cyclists. These issues are considered further in Ch 6. There was a mixed response to the idea of introducing trams, with

3.9

A number of respondents supported changes to the gyratory road system to slow traffic, reduce the barrier effect and provide a more pleasant environment for walking and cycling. There were very few comments on proposals for new road links and other changes to the gyratory network. These proposals have been retained in principle as preferred options, on which the public’s opinions are sought.

3.10

There was a general view that public realm improvements should be a priority for Sutton town centre in order to help attract more visitors and businesses, adding to town centre vitality and economic prosperity. Many respondents sought new and improved public spaces, both hard and green spaces, with suggestions for more seating areas, entertainment spaces and visual improvements, such as water features and public art. There was general support for the idea of a ‘boulevard’ link between the Civic Offices and Manor Park.

3.11

Support for the Council’s ‘One Planet Living’ sustainability

Sutton Town Centre Area Action Plan – Preferred Options Document

14

incorporating a mix of leisure and other uses into the heart of the town centre. The STCP emphasised the need to accommodate high quality retail outlets by providing larger units. In South Sutton, while the owners of some development sites preferred housing to employment, the STCP supported the area’s function as an office quarter with a mix of residential, hotel and leisure uses.

agenda came mainly from the GLA, Environment Agency and PCT. They raised a number of issues needing further consideration, relating to energy, waste and flood risk. These are considered in Chapters 5 and 6. 3.12

In view of the recognised importance of securing good urban design and a high quality public realm, the Council commissioned expert consultants to prepare an Urban Design Framework for the town centre. This work has had a significant influence on the content of the Preferred Options Document, especially demonstrated in Chapters 5 to 8.

3.13

There was general support for the concept of town centre character areas, or ‘quarters’, to help establish a diverse and distinctive character for the town centre. This approach has been continued and refined through the development of the Urban Design Framework. While some respondents, including the STCP, felt that well-designed tall buildings are appropriate in South Sutton, where tall buildings are already located, there were objections to tall buildings in North Sutton. These views were taken into account in arriving at urban design recommendations (Ch 7).

3.14

In North Sutton, people tended to prefer housing, SME employment and leisure uses; the STCP favoured the addition of retail and leisure, extending the offer into the evening in order to reduce anti-social behaviour and the fear of crime. In Central Sutton, the overall preference was for an expanded retail area

3.15

There was general support for the potential development areas identified in the Issues & Options Report. However, some of these have now been omitted or modified following representations from landowners. Government Office for London (GOL) highlighted the importance of demonstrating that there is adequate infrastructure (including transport and community infrastructure) to support planned growth, through the development of a comprehensive evidence base. Work is continuing on this and, while a number of potential development sites are identified in more detail in Ch 8, it is recognised that the cumulative impact of their development has still to be assessed (see para. 5.30, above). This work will be undertaken prior to the finalisation of the AAP.

Recent Workshops 3.16

A workshop, facilitated by the STCP on 29 May 2008, enabled a variety of town centre stakeholders to make suggestions regarding the content of the Preferred Options Document. Operating in groups, participants took part in a planning simulation exercise

Sutton Town Centre Area Action Plan – Preferred Options Document

15

form and function of the town centre, no strong message emerged from the consultation process. In order to come to a decision, a number of boundary options were considered by councillors at an informal Planning Advisory Group workshop on 24 July 2008. Working in separate groups, the councillors agreed with the suggested boundary changes described in para. 1.7, above.

involving the scale and distribution of new development in the town centre. The following main outcomes have been taken into account in the preparation of the Preferred Options Document: Transport – Support for Tramlink and for improvements to Sutton Station, including better links with bus services; some support for an improved public transport facility in the north of the town centre. Tall buildings – The southern part of the town centre is the most appropriate area for the tallest buildings (over 10 storeys); the low-rise character of the High Street should be retained; tall buildings (7-10 storeys) may be appropriate on certain sites along St Nicholas Way and Throwley Way; no consensus regarding the height of new buildings in the northern part of the town centre. Land-uses – Concentrate retail uses in the central part of the town centre, with a mix of offices, bars/restaurants and residential flats; locate cultural and leisure uses to the west of the High Street, supported by retail and residential; offices should be located in the southern part of the town centre, along with bars/restaurants, shops, residential flats, community facilities and a hotel; no consensus on the appropriate mix of uses for the northern part of the town centre. 3.17

The question of the extent of the town centre plan boundary had been raised in the Issues & Options Report and, although there was general support for expansion to improve the overall

3.18

A number of further points have been raised by councillors and members of the STCP Executive Committee. One topical issue is the deliverability of plan proposals in a depressed economic climate. However, the AAP covers a 15 year period and the property market is expected to recover during the first half of the plan period. Indeed, a lack of development pressure and activity in the short term may be to the borough’s long-term advantage if it enables future development to be more clearly influenced by the policies and guidelines of the AAP. This is discussed further in Ch 9.

Conclusions 3.19

Past consultations have proven useful in guiding the preparation of the Area Action Plan and the content of this Preferred Options Document. This document has also been influenced by ongoing research and other work undertaken during 2008, notably the preparation of an Urban Design Framework, a detailed survey of town centre land uses and floorspace and further investigations regarding development sites.

Sutton Town Centre Area Action Plan – Preferred Options Document

16

FOUR

planning policy are highlighted and their influence on the AAP acknowledged.

National Policy Guidance on Town Centres 4.3

Planning Policy Context Introduction 4.1

4.2

15

The Sutton Town Centre Area Action Plan (AAP) will form part of a wider development plan framework, comprising all the Development Plan Documents (DPDs) within Sutton’s Local Development Framework (LDF)15 together with the regional policies and proposals set out in the London Plan. These must be consistent with Government guidance, which is mainly set out in a series of Planning Policy Statements. The Council’s Core Planning Strategy (CPS), reflecting national and regional guidance, as well as the local community strategy, provides the immediate context for the AAP. The AAP is an implementation plan that must conform with higher-level plans and policy documents. Overall, the strategic policy framework was endorsed by the public response to the Issues & Options Report. In this chapter, the key points from national, regional and borough

Sutton’s Local Development Framework will consist of the Core Planning Strategy, Site Development Policies DPD and Sutton Town Centre AAP.

4.4

This is mainly contained in Planning Policy Statement 6 (PPS6) Planning for Town Centres, which sets out the Government’s objectives and policy advice16. The Government’s key objective for town centres is to promote their vitality and viability by: •

Planning for the growth and development of existing centres; and

•

Promoting and enhancing existing centres, by focusing development in such centres and encouraging a wide range of services in a good environment, accessible to all.

These key objectives are consistent with the Government’s wider policy objectives, in particular, “to develop more sustainable patterns of development, ensuring that locations are fully exploited through high-density, mixed-use development and promoting sustainable transport choices, including reducing the need to travel and providing alternatives to car use.”17

16

Relevant advice is also contained in PPS1 Delivering Sustainable Development and other guidance documents. Proposed revisions to PPS6 would not change its primary focus on town centres. 17 PPS6, para. 1.5.

Sutton Town Centre Area Action Plan – Preferred Options Document

17

4.5

Local planning authorities are urged to plan positively for the growth and development of town centres, assessing the need for further town centre uses and ensuring there is the capacity to accommodate these uses. Authorities should focus development in, and plan for the expansion of, such centres as appropriate and identify suitable sites. Local planning authorities should actively plan for growth and manage change in town centres by making better use of land and buildings, including redevelopment where appropriate, and extending the centre where necessary. They should ensure that town centres provide an attractive, accessible and safe environment for businesses, shoppers and residents.

4.6

The detailed advice contained in PPS6 has been influential in the preparation of the Preferred Options Document. Box 4.1 illustrates some of the PPS6 messages that are being incorporated into the AAP.

Box 4.1 Key Messages arising from PPS 6 • Promote high quality and inclusive design, improve the quality of the public realm (1.5) • Assess the need for further main town centre uses and ensure there is capacity to accommodate them (1.6) • Accommodate growth by the more efficient use of land and buildings within existing centres. Increase the density of development, where appropriate. Ensure that the number and size of sites identified for development are sufficient to meet the identified need (2.4)

•

Assess the need for new floorspace for retail, leisure and other main town centre uses, identify deficiencies in provision, assess the capacity to accommodate new development within the centre, including the scope for extending the town centre and/or its primary shopping area (2.16) • Formulate policies which encourage well-designed and, where appropriate, higher-density, multistorey development within and around existing centres, including the promotion of mixed-use development and mixed-use areas (2.20) • Encourage diversification of uses in the town centre as a whole, ensuring that tourism, leisure and cultural activities, appealing to a wide range of age and social groups, are dispersed throughout the centre (2.22) N.B. PPS6 paragraph references in parentheses.

The London Plan 4.7

The London Plan was published in February 2004 and a revised version, consolidated with subsequent alterations, was published in February 2008. It is a strategic plan setting out an integrated social, economic and environmental framework for development in London in the next 15-20 years. It seeks to promote London as a world city and to maintain and enhance the competitiveness of business, including encouraging manufacturing, services, tourism, culture and the arts. It promotes the strategic importance of London’s town centres in accommodating economic

Sutton Town Centre Area Action Plan – Preferred Options Document

18

growth, including that of retail and leisure facilities, and seeks to maximise housing provision and facilitate the development of efficient transport systems. 4.8

4.9

4.10

18

One stated objective is to “promote London’s polycentric development and a stronger and wider role for town centres, to meet the full range of local needs (including shopping, leisure, housing, local services and jobs) and to strengthen their sense of identity.”18 Policy 2A.8 sets out an over-arching approach to support and regenerate town centres, sustaining and enhancing their vitality and viability and accommodating growth through intensification and selective expansion. More detail is provided in Policy 3D.1, Supporting Town Centres, including support for retail, leisure and cultural activities, community services, business and housing; improved access to and within town centres by public transport, cycling and walking; With respect to transport accessibility, it seeks to: reduce the need to travel, especially by car, and the growth of journey lengths; integrate development with public transport to ensure a proper fit between development and public transport capacity, and intensifying the use of land where current or future capacity allows; tackle congestion through levels of car use restraint appropriate to location within London and provide alternatives. The London Plan has been interpreted in more detail through

Introduction (p6).

a number of Sub-Regional Development Frameworks. These provide non-statutory guidance on the implementation of London Plan policies in light of sub-regional circumstances. The South London Development Framework requires growth (including housing, jobs, retail, community facilities) to be accommodated in those areas with the greatest potential for sustainable development. In particular, each of the subregion’s four metropolitan centres is expected to grow significantly to 2016. 4.11

The policies and objectives of the London Plan reflect the advice in PPS6 and have similarly been accommodated in this Preferred Options Document.

Sutton’s Core Planning Strategy 4.12

By interpreting national policy guidance and London Plan policies at the Borough level and in the Sutton context, the Core Planning Strategy (CPS) summarises the strategic policy context for the AAP. It also fully reflects other important plans and strategies relating to the Borough of Sutton, notably the Sutton Strategy, which are important documents that help guide the development of planning policy for the town centre.

4.13

A final CPS document has now been prepared for submission to the Secretary of State for final approval. Its overall vision for Sutton is: ‘Creating a Sustainable Suburb in London’. In the context of creating a ‘Sustainable Suburb’

Sutton Town Centre Area Action Plan – Preferred Options Document

19

by 2025, Sutton Town Centre is expected to grow as an economically prosperous centre. It will be the main focus for the development of high quality commercial, residential and cultural facilities. The town centre will also benefit from improved public transport infrastructure and provide a high quality environment. All new built development will be carried out to the highest standards of sustainable design and construction19. 4.14

The strategic objectives of the CPS have influenced the preparation of the AAP, and are consistent with the objectives set out in Ch. 5. In particular, SO12 is: “To enhance Sutton Town Centre’s attractiveness as a shopping centre and encourage growth as a major shopping, commercial and residential location in South London”. Other strategic objectives, of direct relevance to the preparation of the Preferred Options Document, relate to housing, climate change, sustainable design and construction, employment, reducing car dependence, community infrastructure and the design of buildings and public spaces.

4.15

The CPS identifies the main concentration of development opportunities as being in Sutton town centre, the Borough’s largest centre with the highest level of accessibility. This potential underpins a key aspect of the spatial strategy, which sees Sutton town centre as the major location for retail,

employment and residential growth, and a focus for new cultural facilities.20 This is reflected in Policy PMP6. Core Policy PMP6 – Sutton Town Centre The Council will promote Sutton Town Centre (as shown on the Proposals Map) as a metropolitan centre and will support proposals for new shopping, office, housing, accessible community and leisure facilities, and, cultural development, which will contribute to the regeneration and growth of the town centre and the creation of a ‘Low Carbon Zone’, including: • An expansion of the main retail and leisure area; • Increases in the range and quality of the retail offer; • The creation of a range of employment opportunities including enhanced office provision; • The development of a balanced and socially inclusive night-time economy; • The creation of cultural opportunities that meet the needs of local people; • Options for the extension of London Tramlink and improved public transport passenger interchange facilities; and • The creation of a safe and attractive environment through enhancements to the public realm. The Council expects 90%-95% of the predicted growth in comparison floorspace within the Borough to be provided in Sutton Town Centre. 4.16

20 19

CPS, Proposed Submission, para. 3.3.

21

The CPS21 refers to the role of the Sutton Town Centre AAP in setting out the detailed proposals to implement this policy.

CPS, para. 5.75. Para. 7.78.

Sutton Town Centre Area Action Plan – Preferred Options Document

20

FIVE

Planning Strategy, emerging Site Development Policies DPD and consolidated London Plan.

Sutton Town Centre Partnership’s Vision 5.3

The Sutton Town Centre Partnership was formed in 2006 in order to bring together town centre businesses and other organisations with an interest in the continuing improvement of the town centre. It is linked closely with the Council’s Town Centre Management initiative.

5.4

The following vision was proposed in the Issues & Options Report and received overwhelming support through the public consultation. It provides the basis for the policies and proposals of the Area Action Plan.

Vision & Objectives Introduction 5.1

5.2

By agreeing a common ‘vision’ for the town centre, all parties with an interest in Sutton town centre can have a clear idea of how they see the future. The vision proposed in the Issues & Options Report was suggested by the Sutton Town Centre Partnership, which represents a wide range of town centre interests. It was supported by seven strategic objectives. In order to realise the vision and achieve the strategic objectives, it is necessary to define more detailed operational objectives and identify the actions needed to achieve them. In this chapter, the strategic objectives set out in the Issues & Options Report have been refined into seven sets of operational objectives, providing a policy context for the proposals that follow in this Preferred Options Document. While the final AAP will contain detailed proposals and policy guidelines, it will not contain formal development control policies. Reference will be made, where appropriate, to the policies contained in the submitted Core

A town centre that is more attractive, thriving, vibrant, safe, diverse, welcoming and accessible with a high quality environment that provides a strong economic hub for Sutton and a pleasant living space that attracts and serves the current and future needs of Sutton and its wider area. This vision is consistent with the aspirations for Sutton town centre set out in the Sutton Strategy, and with the vision and strategic objectives of the submitted Core Planning Strategy (CPS). 5.5

The seven strategic objectives have also been retained, subject to minor amendments arising from the public consultation response. They provide a basis

Sutton Town Centre Area Action Plan – Preferred Options Document

21

for the more detailed policy objectives.

multi-functional town centre comprising distinct but interrelated ‘quarters’, with higherdensity mixed-use development accommodating a range of town centre activities (including residential) and delivering a high quality town centre environment. Future town centre development will aim to create a more distinctive image and attract more visitors, businesses and residents. All parts of the town centre will be pedestrian and cycle friendly. Social and physical infrastructure will be provided to support the proposed development, and new buildings will be expected to minimise energy use and reduce the need for private transport.

Preferred Policy Objectives 5.6

These more detailed objectives relate to the themes set out in the Issues & Options Report. They have been derived from: •

•

•

•

The analysis in the Issues & Options Report, summarised and updated in the Spatial Portrait (Ch. 2); The response to the Issues & Options consultation (Ch 3); The policy objectives set out in the Core Planning Strategy and its related development requirements (Ch 4); and Work recently undertaken by consultants in preparing the Urban Design Framework22.

5.8

They are intended to link the strategic objectives with the policies and actions that will be required for successful implementation, and which are explored in more detail in subsequent chapters. A Dynamic and Growing town centre Strategic Objective 1 To intensify the growth of Sutton town centre as a major shopping, recreational, commercial and residential location in South London. 5.7

This is an over-arching strategic objective that suggests a number of broad development principles. In summary, Sutton is to be a

In its spatial strategy, the CPS makes clear that major redevelopment and growth is to be targeted at Sutton town centre, where there will be significant retail, employment and residential growth in the period up to 202523. This is reflected in Core Policy PMP6, which supports proposals for a range of town centre uses24. The AAP is seen as the means of progressing a vision for the town centre, in accordance with this policy25. The CPS promotes mixed-use development and suggests that the town centre may have to expand beyond its current boundaries and alter its restrictive linear form26. It also promotes ‘low carbon’ development and proposes

23

CPS para. 4.5. Para. 4.13, above. 25 CPS para. 5.78. 26 CPS para. 5.76. 24

22

As described in the Introduction.

Sutton Town Centre Area Action Plan – Preferred Options Document

22

Sutton town centre as a ‘Low Carbon Zone’27. 5.9

The Urban Design Framework illustrates how these broad development principles may be achieved. Its approach is based on good urban design, including attractive buildings with interesting frontages, welldefined and usable spaces and clear links between them. It foresees a high-density mixeduse town centre comprising distinct but inter-related “quarters”. Underlying this approach is the principle of sustainable development – with respect to transport, activities, buildings and spaces.

Preferred Policy Objectives DG1 Establish a multi-functional town centre comprising a number of distinct but related town centre “quarters”. Each quarter will have its own identity and, together, they will make a town centre that is more sustainable, characterful, vibrant and economically successful - a better place in which to live, work or visit. Alternative option –make no distinction between different parts of the town centre in terms of urban design principles and the balance of land-uses. DG2 Encourage high density mixed-use development on all town centre development sites. Mixed-use development will create variety and vitality, will be more sustainable and will enable a range of development needs to be met. Single use 27

This is explored in more detail under Strategic Objective 7, below.

development would be appropriate only in exceptional cases. Alternative option –allow single use development on a wider range of town centre sites. DG3 Rebalance the relationship between motor vehicles, pedestrians and cyclists, making the town centre more people-friendly overall. A comfortable people-focused environment is seen as essential to town centre success, and this will require some reduction in the amount of space allocated to motor vehicles. Alternative option –maintain the primacy of motor traffic on the town centre’s ‘gyratory’ road system. DG4 Ensure that new development is of high quality design, enhancing the local townscape and contributing to an improved public realm. This would entail the adoption of suitable design codes for different parts of the town centre and a public realm strategy covering the whole of the town centre. Alternative option – consider the design of new developments on a site-by-site basis. DG5 Ensure that all new development contributes to the transformation of Sutton town centre into a ‘Low Carbon Zone’. The early introduction of ambitious sustainable design and construction standards and targets is necessary in order to achieve the Council’s sustainability objectives. Alternative option – apply a borough-wide approach, pending a more detailed town centre

Sutton Town Centre Area Action Plan – Preferred Options Document

23

available to attract the popular multiples as well as independent retailers.

strategy, so as not to discourage development. A vibrant Retail and Leisure destination 5.12

Street markets can contribute to vitality and retail choice. However, the current market (in the lower High Street, outside Asda) is not ideal. An aspiration is to have an attractive, vibrant and successful market that contributes to the overall town centre offer. This may be best done by improving the existing market area, rather than identifying a new site further away from the High Street. Accordingly, the first phase of the Town Centre Renewal Project will begin in this area, enhancing its appearance and introducing new market stalls in a new layout32.

5.13

The Council strongly supports the development of leisure and cultural facilities, particularly within Sutton Town Centre33. In response to the Issues & Options Consultation, there was general support for the idea of a “cultural hub” and new sports and leisure facilities within the town centre. Possible sites for such developments are identified in Ch 8, below.

5.14

The evening/night-time economy is recognised as an important contributor to town centre

Strategic Objective 2 To make provision for the growth of retailing and leisure, and to encourage the recreational and cultural role of Sutton town centre. 5.10

Core Policy PMP6 seeks the growth and improvement of the town centre’s retail and leisure offer, including the creation of cultural opportunities and development of a balanced and socially inclusive night-time economy28. These aspirations broadly match the Issues & Options consultation response29.

5.11

The 2006 Sutton Retail Assessment30 concluded that Sutton must improve its retail offer simply to maintain its position relative to competing centres. In the context of expected growth in comparison goods spending power, the consultants identified a need for an additional 6,000-16,000 sq m net31 comparison floorspace in the Borough by 2017. Although the current economic recession will delay retail expansion in the short term, it is assumed that demand will pick up again over the plan period to 2025. The Council expects 90%-95% of growth in comparison floorspace within the Borough to be provided in Sutton Town Centre. It will be important to ensure that the right kinds of retail unit are

28

See para. 4.15, above. See para. 3.5, above. 30 See para. 2.11, above. 31 Equivalent to 8,674-22,680 sq m gross floorspace. 29

32

See para. 6.15, below. This is largely an operational issue that falls within the scope of Town Centre Management (TCM) and the Sutton Town Centre Partnership. It should be seen alongside the TCM initiatives for specialist markets in and around the town square. 33 See CPS Core Policy BP11. The CPS emphasises the role of cultural activity in making Sutton a vibrant town centre and proposes (paras 4.6 and 5.79) the development of a new theatre/arts complex.

Sutton Town Centre Area Action Plan – Preferred Options Document

24

character and success. However, Sutton’s offer is dominated by pubs, clubs and restaurants appealing mainly to a younger adult audience34, and there is a perception among visitors and residents that the centre is not a safe environment or pleasant place to visit after dark. While published crime statistics35 do not support this perception, the Council will continue to work with the Safer Sutton Town Centre Partnership to minimise potential for crime and disorder36. Through both TCM activities and the proposals of the AAP, the Council will seek to diversify the evening economy to appeal to a wider range of people, including under-18s, families and older people.

retail premises to meet future needs; or, spread new retail units more widely throughout the town centre. RL2

Provide opportunities for the development of new leisure and cultural facilities. Sites will be identified that can accommodate suitable facilities as part of mixed-use development. A new ‘cultural hub’ will be a priority, and improved sports and leisure attractions will be encouraged. A range of other leisure and entertainment uses, including restaurants and hotels, will also be encouraged within an enhanced town centre environment. Such facilities would ideally be located within a new ‘Cultural Quarter’, which would enhance and diversify the evening economy. Alternative option – spread new leisure facilities throughout the town centre.

RL3

Promote and facilitate a legible and attractive town centre visitor circuit. This would be achieved by linking shops with complementary leisure and service activities via a high quality environment. It recognises the need to provide an excellent visitor experience if Sutton is to compete successfully with rival centres. Alternative option – do not promote a town centre visitor circuit.

RL4

Encourage a diversified evening economy that is more attractive to a wider range of visitors and families. This stems from Objectives RL2 and RL3, and would also require proactive measures to encourage

Preferred Policy Objectives RL1

34

Facilitate an increase in the amount and quality of comparison retail space in the town centre. As an indicative target, 7,800–21,500 sq m gross additional retail floorspace is required for the town centre to fulfil its potential. Suitable new units are needed to attract popular (fashion) retailers and encourage independent retail businesses, in order to contribute to the centre’s variety, vitality and distinctiveness. The best way to achieve this is to allocate additional sites within an expanded primary shopping area. Alternative options – rely on the redevelopment of current

See para. 2.12, above. Boroughwide figures can be found in the Council’s Annual Monitoring Report 2007-08, para. 3.48. 36 Including the application of “designing out crime” principles in all new developments. 35

Sutton Town Centre Area Action Plan – Preferred Options Document

25

2,000 town centre39 jobs during the plan period, of which half would be based in offices and half in other business premises (including shops, hotels and food & drink establishments). This translates into a need for a net increase in office floorspace40 of 22,500 sq m, of which 18,000 sq m could be located in Sutton town centre41. Some of this requirement could be met through the re-use or replacement of existing vacant space, with mixed-use refurbishment or redevelopment providing modern flexible office space that meets the needs of potential occupiers. However, there would still be a need for a net increase of an estimated 9,000 sq m of new office space in Sutton town centre42.

suitable leisure activities and ensure public confidence regarding safety at night. It implies the creation of new areas of evening activity. Alternative options – do not seek to encourage more people to visit the town centre in the evenings; or, concentrate evening activities in a defined entertainment zone. A prosperous Business and Employment location Strategic Objective 3 To make provision for sufficient employment premises to support economic prosperity. 5.15

5.16

37

Core Policy PMP6 envisages the creation of a range of employment opportunities in Sutton town centre, including enhanced office provision. Accordingly, the AAP is expected to contain proposals encouraging new office space through mixeduse development37. This approach is consistent with the analysis contained in the Issues & Options Report and is supported by the findings of the Council’s recent Employment Land Review Update (ELRU)38. The prime mechanism for securing new offices in Sutton town centre is likely to be through mixed-use schemes, using the relatively strong market pressure for housing to fund upgraded employment space. The ELRU identified an indicative requirement for an additional

CPS para. 5.54. Report of Studies 3: Core Planning Strategy Proposed Submission (November 2008). Chapter 4 (Employment). 38

5.17

The required proportion of new office space within mixed-use developments will vary, depending on such factors as site location and development viability. In view of the large amount of new development that may take place, the need to accommodate other uses and the reality of the development economics, it is likely that offices will normally constitute only a minority of the new or refurbished floorspace.

5.18

Preferred Policy DM36 of the Site Development Policies DPD retains the UDP presumption

39

Jobs in Sutton town centre and the six district centres. 40 Gross external floor area. 41 Assuming 80% of the total, reflecting Sutton town centre’s existing share of occupied floorspace. 42 Assuming a residual 8% ‘frictional’ vacancy rate.

Sutton Town Centre Area Action Plan – Preferred Options Document

26

against the loss of existing office accommodation without demonstrable evidence of lack of market demand. In the context of the ELRU findings, it also requires provision for new employment uses, within mixed use developments, to provide at least 50% of the previous employment levels on the site, including an element of flexible, adaptable office floorspace. New employment opportunities, including offices, are also needed on other town centre sites if planning objectives and employment targets are to be met.

generating uses in new mixeduse developments will depend on the location and capacity of the development sites44. New office space is particularly appropriate in locations with most accessibility to public transport, especially in the southern part of the town centre where there is good access to the railway station. The emphasis should be on providing flexible office space for small and medium-sized businesses. The indicative requirement is for a net increase of 9,000 sq m over the plan period. Alternative option – do not apply this requirement on all suitable sites45.

Preferred Policy Objectives BE3 BE1

BE2

43

Increase town centre employment in a variety of sectors by providing additional employment space in offices, shops and other town centre premises. New employment space will be secured through conversion or development on all town centre sites and premises where mixeduse development is proposed. Developers would be required to provide suitable employment space. The indicative requirement is for the creation of an additional 2,000 jobs over the plan period. Alternative option – do not require developers to provide new employment space43. Provide for new office space within mixed-use development on all suitable sites. The appropriate proportion of office space and other employment-

This would increase the risk of not meeting employment targets.

Protect existing office space that is suitable for continued office use, or could be made suitable for continued use. Pressure to convert or redevelop office buildings often stems from an expectation of enhancing property values, even if continued office use is viable. This would be to the detriment of overall town centre vitality and prosperity. Alternative option – allow alternative uses providing employment opportunities.

A growing Residential Community Strategic Objective 4: To help meet future local need for housing and community infrastructure, and contribute to the Borough’s share of London’s need. 5.19

In view of its excellent accessibility and significant

44

This is considered on a site-by-site basis in the Schedule at the end of this document. 45 Perhaps allow commuted sums to be paid to provide office space elsewhere within the town centre.

Sutton Town Centre Area Action Plan – Preferred Options Document

27

development opportunities, the town centre will be an important location for new housing. The CPS makes provision for 2,000 2,150 additional dwelling units within Sutton town centre over the 15-year plan period, comprising 40% of the Borough total46. Town centre housing is expected to be of high density and good design, and to relate satisfactorily to its surroundings47. It should also contribute towards the Council’s overall borough-wide target for 50% of all new housing to be “affordable”48. The Council will seek to ensure that new housing is built to Lifetime Homes Standards49 and that 10% percent of new housing is designed to be wheelchair accessible50. 5.20

mix will be required, taking into account development potential within the town centre and in the Borough as a whole. It will also be necessary to consider the most effective ways in which new housing can contribute to open space requirements, in accordance with the proposed policies of the Site Development Policies DPD52. 5.21

New housing development must be supported by the necessary social and economic infrastructure. An advantage of a town centre location is its ready access to shopping, leisure and employment opportunities. Existing town centre social and community facilities were briefly described in 2.15, above. The Issues & Options consultation indicated a possible need for further facilities, including community halls and meeting spaces for religious groups, clubs and social gatherings. Further research and consultation is needed to identify future requirements and opportunities, including possible funding and delivery mechanisms, and to test whether the identified sites are suitable to accommodate the demand. In particular, further discussions with providers and user groups are needed to identify detailed requirements for childcare53, health and education.

5.22

The CPS shows most of the town centre as a Priority Community Regeneration Area54. In such

The CPS seeks to ensure that new developments offer a mix of housing sizes and types, taking into account the housing requirements of different groups51. High-density town centre development, within mixed-use schemes, will necessitate a predominance of apartments. These would be particularly suitable for smaller households seeking a central location, and would meet a need identified in the Housing Needs Study 2005. However, some town centre sites may also be suitable for family housing. Further consideration of housing

46

Core Policy PMP1 – Housing Provision. Core Policy BP1 – Housing Density. 48 Core Policy BP2 – Affordable Housing 49 Lifetime Homes are designed to be adaptable to the changing needs of their occupants as they become older. 50 CPS, paras 6.35-6.36. 51 CPS, para. 6.29. 47

52

Preferred Policies DM16 & DM29. E.g. Nurseries & crèches. 54 This designation reflects the presence of a ‘super output area’ that falls within the 20% most deprived communities in the country. 53

Sutton Town Centre Area Action Plan – Preferred Options Document

28

areas, the Council will support programmes to improve access to housing, education, employment opportunities, health, social and other services and facilities. The Council will also support investment in environmental improvements and sustainable transport schemes, and all new development should make a contribution towards improving the provision of, and access to, social and community facilities55.

An accessible town centre served by Sustainable Transport Strategic Objective 5 To provide the necessary level of accessibility to the town centre and its facilities, with the transport infrastructure to support town centre growth and encourage sustainable modes of travel. 5.23

The town centre’s high level of accessibility is a major reason why it is a preferred location for development. The Council will seek to maintain and improve accessibility to and within the town centre, in order to meet the needs of residents and businesses, attract visitors and encourage development. The Council’s overall approach to town centre transport issues reflects its sustainability agenda, which corresponds with Government policy advice and the policies of the London Plan. Overarching themes are to minimise the need to travel and to encourage the use of sustainable modes of transport. The Council’s Smarter Travel Sutton57 initiative exemplifies this approach.

5.24

The CPS seeks to promote sustainable modes of transport through better public transport facilities, improved pedestrian/cycle links and measures to reduce the volume and speed of traffic58. For Sutton town centre, public transport improvements are required to facilitate the proposed level of

Preferred Policy Objectives RC1

Secure new residential units as part of town centre mixeduse developments. The CPS requirement is for 2,000 - 2,150 additional residential units over the plan period. Most of these units will be within mixed-use developments, spread throughout the town centre, at a density and mix consistent with their location and good design. Alternative option – allow singleuse residential development on some town centre sites.

RC2

Improve the quality and provision of social and community facilities, in accordance with identified needs. There may be opportunities to rectify existing deficiencies56 and/or rationalise existing services. Future requirements, stemming from population pressures, should be met through new development. Alternative option – do not seek to provide or fund these facilities through new development.

57

55

Core Policy PMP3 – Community Regeneration Areas 56 Including facilities for the young and elderly.

Smarter Travel Sutton is a campaign to encourage local people and businesses to reduce car use, e.g. by changing travel mode and car sharing. 58 CPS Core Policy BP9.

Sutton Town Centre Area Action Plan – Preferred Options Document

29

development, including an upgraded public transport interchange around the station, other improvements to facilitate better bus operation and, eventually, a Tramlink extension59. Accordingly, the AAP will seek to improve public transport infrastructure, encourage walking and cycling and discourage unnecessary use of private vehicles. 5.25

5.26

59

Improved public transport is central to the strategy of the AAP. It will be necessary to increase capacity and improve choice and quality in order to meet the additional travel demand arising from new development. Better public transport will ensure that Sutton town centre remains highly accessible and encourage the desired modal shift from private cars. Proposals will include the introduction of Tramlink, improved bus priority and better interchanges60. Better rail services are also desirable, and planned improvements to Thameslink routes should benefit the town centre. The AAP will encourage walking and cycling in order to reduce car use and improve town centre vitality. This will also be of benefit to people’s health, by encouraging exercise and improving air quality. It is intended to enhance the pedestrian environment throughout the town centre with better connectivity between different parts of the centre and with surrounding residential

CPS para. 4.8, Core Policy PMP6 and Core Policy BP9. 60 These are outlined in Ch 6, below.

areas. In order to encourage cycling, it is proposed to allow joint use61 within the pedestrianised areas, provide secure cycle parking and improve links to the borough cycle network. 5.27

Changes are proposed to the town centre’s gyratory road network in order to serve new development and secure environmental improvements62. These changes include new road links, the rerouting of vehicular traffic and improvements to the pedestrian environment involving reduced road space. The latter is one aspect of traffic demand management, whereby greater pedestrian priority is provided consistent with the need to maintain the flow of traffic on the strategic road network.

5.28

Another aspect of demand management is to limit the supply of town centre car parking spaces, in public car parks and associated with new development. The Council has developed restraint-based maximum parking standards which recognise the need to discourage unnecessary car use by limiting the amount of parking in sustainable locations63. The Site Development Policies DPD sets out the Council’s car and cycle parking standards64. The general intention is to minimise the amount of car parking to be provided in association with new

61

This has already been implemented, on an experimental basis, as part of the Town Centre Renewal project. 62 Proposals are outlined in Ch 6, below. See also CPS para. 4.8. 63 CPS para. 6.162. 64 Preferred Policy DM22 and Appendix 7.

Sutton Town Centre Area Action Plan – Preferred Options Document

30

town centre development. However, it is important that restrictions on car parking spaces do not jeopardise the success or viability of desirable commercial developments. In particular, a lack of on-site car parking may deter companies from taking town centre office space. Indeed, there is a danger that developers seeking to maximise the amount of residential space within mixeduse developments may restrict the number of car parking spaces for the commercial element in order to deter demand and justify a subsequent change of use to residential. It is therefore suggested that office developments should normally provide on-site parking at the maximum standard. 5.29

5.30

There is potential to improve access for people with physical disabilities by incorporating suitable facilities into the design of new public transport interchanges and improving provision at public car parks.

• •

The research should be comprehensive65, covering all aspects of town centre transport, and is needed prior to the completion of the AAP, Preferred Policy Objectives ST1

Further research is needed into the transport aspects of the AAP, building on the work, previously carried out by Atkins, that focused on Tramlink options. The study should investigate: •

•

Additional trip demand arising from potential town centre developments and their cumulative impact on the town centre transport network (including roads and public transport); Preliminary design and project appraisal of the proposed changes to the highway network, including

new road links and pedestrian priority measures, and their impact on the town centre transport network; A review of car parking policy and provision; Any additional or alternative measures that would be necessary to accommodate future transport demand resulting from plan proposals, including new road space, traffic management, demand management, public transport services and infrastructure.

Increase public transport capacity and connectivity through improved bus infrastructure and the introduction of Tramlink. This is necessary to maintain and improve town centre accessibility, meet increased travel demand arising from town centre growth and encourage a modal shift away from private car use. Tramlink would bring significant benefits in terms of capacity and reliability. Alternative options – do not pursue Tramlink, investing instead in significant improvements to the bus

65

Core Policy BP9 supports comprehensive transport measures to improve sustainable transport in and around each of the Borough’s town centres.

Sutton Town Centre Area Action Plan – Preferred Options Document

31

network; or, encourage smallerscale improvements to existing public transport infrastructure. ST2

Provide improved public transport interchanges and waiting facilities in different parts of the town centre. This would be achieved in conjunction with new development and public realm improvements. It would include improved disabled access. Alternative option - rely on existing interchange facilities.

ST3

Modify the town centre road layout in order to serve new developments and facilitate environmental improvements. This could involve the construction of new road links and the rerouting of traffic along roads that are currently relatively lightly trafficked. Alternative options – maintain the gyratory road system in its current arrangement66; or, do not reroute traffic along existing roads.

ST4

ST5

Transfer some road space, currently used by motor vehicles, to pedestrian use and/or buses. This is intended to encourage walking and/or public transport use and to enable environmental improvements67. It would require careful design to maximise benefits while minimising adverse effects on traffic flow. Alternative option – maintain existing road space so that the flow of traffic is not impeded. Restrict the supply of town centre car parking, in public

car parks and in conjunction with new development, consistent with the need to encourage town centre visitors and viable commercial investment. This involves the application of restraint-based maximum parking standards, but new commercial developments would be required to provide sufficient on-site parking to ensure commercial viability. A review of public car park provision should form part of a comprehensive town centre transport study. Alternative option – allow zero on-site parking for all kinds of development. ST6

Adopt a comprehensive approach to encourage cycling, including allowing cycling within car-free areas. Reducing barriers and restrictions, improving cycle security and improving linkages will increase the attractiveness of cycling as a modal choice. Alternative option – restrict cycling within pedestrianised areas.

ST7

Encourage walking to, from and within the town centre. The preferred approach is to make walking easier and more comfortable by enhancing the quality of public spaces, improving the attractiveness and legibility of walking routes and reducing the adverse impact of road traffic. Alternative option – restrict walking options on busy vehicular routes.

66

With heavy traffic continuing to use parts of the High Street. 67 Also relevant to improving the town centre environment under Strategic Objective 6.

Sutton Town Centre Area Action Plan – Preferred Options Document

32

public realm70. Elsewhere, the CPS acknowledges the role of the AAP in setting out an urban design framework for Sutton town centre71 and in identifying areas with potential for tall buildings72.

An attractive centre of high quality Buildings and Spaces Strategic Objective 6 To promote a safe, healthy and attractive living environment for all by improving the design and layout of buildings and public spaces. 5.33 5.31

5.32

68

The importance of good urban design to achieving sustainable development is highlighted by the Government in PPS1. The Issues & Options Report looked in some detail at the urban design issues affecting the town centre and, as a result, the Council commissioned Gillespies to prepare a detailed Urban Design Framework (UDF). The contents of the UDF have underpinned the preparation of the Preferred Options Document. The urban design principles arising from the UDF are summarised in Ch 7, in context of town centre quarters. The key elements of a public realm strategy are set out in Ch 6. The CPS68 seeks to ensure good urban design, encouraging developments that respect local context, create attractive and accessible public spaces, create easier movement and promote legible places through the development of landmark buildings and public realm features. Sutton town centre is identified as an appropriate location for tall and landmark buildings69. Core Policy PMP6 refers to the creation of a safe and attractive environment through enhancements to the

Core Policy BP12 – Good Urban Design and Heritage. 69 CPS para.4.5 and Core Policy BP13 – Taller Buildings.

The UDF provides a comprehensive analysis of the town centre’s urban character and sets out specific design principles for its future development as a distinctive Metropolitan Town Centre. These important urban design principles73 relate to: •

•

•

•

Sustainability – including a mix of uses and wellconnected public open spaces and the expansion of a green network throughout the town centre. Accessibility and Linkages – a clear structure of routes, especially for pedestrians and cyclists, reducing existing barriers to movement and establishing an attractive ‘visitor circuit’. Improved Public Realm – creating high quality streets and public spaces and enhancing the connections between key spaces, landmarks and destinations. Exemplary Development – creating a quality visual experience through street

70

See 4.15, above. CPS para.6.183. See also Preferred Policy DM35 of the Sites Development Policies DPD (Preferred Options), which states that the scale and mix of development appropriate within different quarters of the town centre is detailed within the AAP. 72 Core Policy BP13 – Taller Buildings. 73 See Sutton Town Centre Urban Design Framework, Part D, for more detail. 71

Sutton Town Centre Area Action Plan – Preferred Options Document

33

•

5.34

5.35

and building design, revealing and creating landmarks that contribute to the town centre’s identity. Quarters Theme – creating different character areas that encourage diversity and interest.

The design and place-making principles suggested in the UDF apply to the town centre as a whole and to the four distinct ‘quarters’. While the guidelines allow for taller buildings in certain parts of the town centre, they also seek to protect the human scale of the High Street and provide a sensitive transition between the town centre and neighbouring residential areas. In respect of public realm, the UDF identifies an integrated system of spaces and pedestrian links as the basis for a public realm strategy. The preferred policy objectives, set out below, reflect this advice. The UDF emphasises the importance of distinctive ‘landmarks’ that help define the town centre’s identity. A formal review of those existing buildings and areas that contribute to town centre character and heritage could be carried out as part of the next stage of AAP preparation, taking into account the findings of the Urban Design Framework. In particular, the potential for designating an additional Area of Special Local Character (ASLC), covering Sutton Green and adjoining residential property, should be considered.

Preferred Policy Objectives BS1

Adopt design guidelines for new built development in the town centre, based on the four Town Centre Quarters. New buildings should be of high quality design, respecting their context and surroundings. Design guidelines, relating to the four town centre quarters, are summarised in Chapter 7. More detailed guidelines, arising from the UDF, may be adopted at an early stage, as a material consideration in determining planning applications. The guidelines would complement and augment the urban design policies of the CPS, Sites Development Policies DPD and the Council’s Urban Design SPD. Alternative Option – Not to have specific design guidelines for town centre development.

BS2

Ensure that all new development contributes towards the implementation of a comprehensive public realm strategy. The intention is to help bring about a significant uplift in the environmental quality of the town centre. Public realm enhancements, including the creation of new and improved public spaces, should be required of all built development, as an integral part of its design and/or through a financial contribution to off-site works. The main elements of a suggested public realm strategy are set out in Ch 6. Alternative Option – To seek smaller-scale public realm improvements in conjunction with individual developments.

Sutton Town Centre Area Action Plan – Preferred Options Document

34

BS3

approach of the CPS and Sites Development Policies DPD, which also reflect Government advice and the strong lead given in the London Plan. In particular, CPS policies seek to:

Protect the existing smallscale character of Sutton High Street and of the residential areas adjoining the town centre. New development in or adjacent to the High Street should reflect the scale, height and massing of existing buildings. Elsewhere, where new development adjoins residential areas outside the town centre, it should not be unduly harmful to residential scale and character. Alternative Option – To allow larger buildings in locations that change the character of the High Street or of residential areas outside the town centre.

•

•

An exemplary centre for Sustainable Living

The Site Development Policies DPD contains more detailed policies intended to achieve environmental sustainability through the control of new development.

Strategic Objective 7 To encourage sustainable development in accordance with the principle of “One Planet Living”. 5.36

Sutton’s Sustainable Community Strategy sets out the Council’s vision for “One Planet Living” (OPL)74. The Council’s Environmental Sustainability Strategy states that, in order to meet the Zero Carbon principle, all buildings must reduce energy demand (through meeting energy efficiency standards), and all energy used in buildings must be from renewable sources. The Council has committed to all Council buildings becoming Zero Carbon by 2017 and to a Zero Carbon Borough by 2025.

5.37

The Council’s OPL vision has been incorporated into the

Promote sustainable design and construction, minimise energy use and encourage the generation and use of renewable energy (on-site and through district-wide networks)75; Avoid, manage and reduce all sources of potential flood risk to and from new development and adapt to the future impacts of climate change76

5.38

LDF policies will apply to all new development in Sutton town centre, which is expected to become a ‘Low Carbon Zone’77. This reflects the opportunity, arising from the scale of potential development and regeneration, to adopt a comprehensive approach to achieving sustainability principles in new (and existing) development. The town centre could be seen as an ‘exemplar’ for other centres within the borough and elsewhere.

75

74

Sutton Strategy 2008-10 (Sutton Partnership). The CPS provides a brief explanation in para. 6.85.

Core Policy BP6 – One Planet Living. Core Policy BP7 – Flood Risk and Climate Change Adaptation. 77 Core Policy PMP6 – Sutton Town Centre. 76

Sutton Town Centre Area Action Plan – Preferred Options Document

35

5.39

The AAP can be instrumental in transforming the town centre into a ‘Low Carbon Zone’ by setting out detailed standards for promoting low carbon development78. It would seek to ensure that all new development achieves the highest standards of sustainable design and construction at an early stage, minimising carbon dioxide emissions by using less energy and using renewable sources of energy, ideally generated onsite79. Some town centre development sites may provide opportunities to promote exemplary Zero Carbon buildings, using principles of passive design.

5.40

Alongside measures to reduce the causes of climate change, the principle of One Planet Living also covers actions to mitigate the effects, notably by reducing the risk of flooding. According to Environment Agency data, much of the town centre falls within flood risk areas80. New and refurbished buildings present an opportunity to introduce water efficiency, reuse and recycling. The Site Development Policies DPD contains detailed policies81 to minimise flood risk and promote Sustainable Urban Drainage Systems (SUDS). These policies will apply within Sutton town centre.

5.41

The AAP may also be able to promote wider schemes and networks to facilitate low carbon development. This would be in accordance with the CPS, which seeks to maximise opportunities for new district wide heating and cooling networks supplied by decentralised energy (including renewable generation) in partnership with key stakeholders82. Some of the possibilities are explored in Chapter 6, below. There may also be scope to introduce one or more town centre SUDS, to reduce flood risk overall and, perhaps, linked into proposals to enhance biodiversity and the public realm. The proposals set out in Ch.6 are tentative at this stage, and further work is under way to investigate how the Council’s objectives can be achieved. The outcomes from this research will feed into the final AAP.

Preferred Policy Objectives SL1

Require all new built development to comply with the highest standards of Sustainable Design and Construction. Boroughwide standards are set out in the Site Development Policies DPD83. Ongoing research will determine whether more stringent standards are needed for the town centre to become a successful Low Carbon Zone.

78

As proposed in the Site Development Policies DPD, Preferred Policy DM5 – Carbon Dioxide Emissions and Renewable Energy. 79 In accordance with Core Policy BP6. 80 Specific examples are shown in the Schedule of Development Opportunity Sites. 81 Preferred Policies DM7 – Flood Risk; DM8 – Climate Change Adaptation and Sustainable Urban Drainage.

82

Core Policy BP6. The Site Development Policy Document (Policy DM6) sets targets for all new residential developments to achieve Code for Sustainable Homes Level 4 by 2011 and Level 6 (zero carbon) by 2014, and non-residential schemes to achieve the zero carbon standard by 2017. 83

Sutton Town Centre Area Action Plan – Preferred Options Document

36

Proposals for exemplary Zero Carbon developments on key town centre sites will help achieve this objective. Alternative option – apply the same standards in the town centre as for the rest of the Borough. SL2

SL3

Encourage decentralised heat and power generation on suitable sites, supplying new developments through town centre wide heating and cooling networks. This would be in addition to energy from onsite renewables and other sources. Further research is required to develop a strategic approach to the provision of renewable energy in the town centre. Alternative option – depend solely on other sources of renewable energy. Adopt a comprehensive approach to Sustainable Urban Drainage in the town centre. Research would be needed to investigate and develop a strategic approach to urban drainage, incorporating the wider town centre environment. Alternative option – introduce SUDS on a site-by-site basis.

Implementing the Policy Objectives 5.42

The objectives would be achieved through: •

•

•

•

The relevant policies of the CPS and Site Development Policies DPD; General proposals relating to built development, public realm and transport (Ch6); The definition of town centre policy areas and application of related development guidelines (Ch7); and The development of identified opportunity sites (Ch8).

The objectives are realistic in the context of the analysis that has been undertaken so far. They reflect research into issues and options and the outcomes from public consultation. They are proposed for public consultation. Some will be subject to further more detailed assessment, as described in this chapter and summarised in Chapter 9.

Sutton Town Centre Area Action Plan – Preferred Options Document

37

This page is intentionally left blank for printing purposes.

Sutton Town Centre Area Action Plan – Preferred Options Document

38

SIX Proposals – Sustainable Built Development, Public Realm and Transport

Sustainable Built Development 6.2

In order to encourage sustainable development in accordance with the principle of “One Planet Living” (Strategic Objective 7), it is proposed to adopt a strategic approach to transforming Sutton town centre into a Low Carbon Zone85. This section sets out some preliminary proposals relating to buildings, the energy they use and how they deal with water run-off. Pending further research, these proposals are presently only at an “ideas stage”. Nevertheless, the Council would value feedback on these suggestions as an input into the final stage of AAP preparation.

6.3

The Council has engaged consultants, Creative Environmental Networks, to advise on the technical feasibility and commercial viability of achieving zero carbon development. The consultants looked first at the Hackbridge86 area and will examine the potential of Sutton town centre in 2009/2010. The research will inform the carbon reduction targets to be included in the AAP and the approach it should take to achieving these targets.

6.4

All town centre buildings should be designed and built to minimise energy use and the wasteful use of resources. The Council will encourage:

Introduction 6.1

This chapter concerns those cross-cutting issues that affect the town centre as a whole and provide a context for the more detailed consideration of policy guidelines and development proposals in the following chapters. It covers sustainable buildings, public realm and sustainable transport. It sets out ideas and proposals relating to the town centre environment and infrastructure. The unifying theme is “environmental sustainability”84.

85

84

Social and economic aspects of sustainability have been incorporated into the objectives set out in Chapter 5.

See paras 5.36-5.41 and Preferred Policy Objectives SL1-SL3. 86 The findings are set out in the report: Hackbridge Sustainable Suburb: Evidence Base for a Zero Carbon Policy, March 2009.

Sutton Town Centre Area Action Plan – Preferred Options Document

39

• •

•

•

•

infrastructure, such as CHP88 systems, to provide heat and power to new and existing developments89. The consultants’ work at Hackbridge suggests that heat networks, linked to biomass CHP, could form part of an effective strategy to deliver Zero Carbon Development, although this would mean an increase in build cost. Because decentralised energy networks are most appropriate where buildings are densely spaced and where there is a constant heat demand throughout the day90, there may well be potential for a decentralised CHP or CCHP91 system within the town centre.

Use of local and sustainable materials; Minimising energy consumption through passive solar design, natural ventilation and other energy efficiency measures; Supplying energy efficiently, particular by prioritising decentralised energy generation; The retro-fitting of existing buildings to best practice energy efficiency standards; The use of renewable energy, either generated on site or supplied from a dedicated off-site source.

Proposal 6.2: Subject to further investigation, all new development in Sutton town centre should be linked to decentralised energy infrastructure.

A number of relatively large potential development sites are identified in Ch 8, including sites owned by the Council and utility companies. One or more of these sites could, in the short term, be used for the design and construction of exemplary zero carbon buildings that set the standard for future town centre developments. Proposal 6.1: Exemplary zero carbon development should be sought on key development sites in Sutton town centre.

This proposal is in accordance with Preferred Policy Objective SL2. It is contingent on the consultants’ study demonstrating that a viable system can be designed. 6.6

This proposal is in accordance with Preferred Policy Objective SL1. 6.5

87

The Council has indicated87 that it will assess the capacity of Sutton town centre to accommodate renewable or low carbon technologies and evaluate the potential of decentralised energy

CPS para. 6.93.

The Council is committed to promoting the most effective adaptation to the impacts of climate change92 throughout the Borough by ensuring that all developments are designed to contribute to reducing flood risks,

88

Combined Heat and Power. The Site Development Policy document (Policy DM5) also makes specific reference to incorporating CCHP/CHP systems into development. 90 E.g. a mix of housing and commercial/community buildings 91 Combined Cooling, Heat and Power. 92 See Site Development Policy document (Policy DM8) 89

Sutton Town Centre Area Action Plan – Preferred Options Document

40

including applying principles of sustainable urban drainage, minimising internal overheating and solar gain in summer and maximising the role of green infrastructure. The town centre is potentially affected by a number of different sources of flood risk93. Parts of the town centre, including some of the proposed development sites identified in Ch 8, are located within identified Flood Zones94. Also, the southern part of the town centre is occasionally affected by surface water flooding after heavy rainfall. However, because Sutton town centre is a highly accessible location where development has previously taken place, it is not appropriate to resist new development on the basis of flood risk. 6.7

All town centre development should be appropriately flood resilient and resistant, demonstrating that risks can be safely managed. This can be achieved through measures such as green roofs, soft landscaping, porous paving and reuse of rain water. Opportunities for deculverting and restoring natural flood-flow pathways should also be explored where appropriate. The potential for a co-ordinated approach to the management of surface water run-off in the town centre was identified in 5.41, above95. The design and implementation of a large-scale

Sustainable Urban Drainage System (SUDS), linking new developments with public realm features, would require more detailed investigation, including into the detailed nature of the flood risk. Proposal 6.3: Subject to further investigation, a town centre SUDS and Climate Change Adaptation strategy, incorporating all new development, should be adopted. This proposal is in accordance with Preferred Policy Objective SL3.

Improving the Public Realm 6.8

The quality of the public realm is of vital importance to town centre character, attractiveness and success. Public spaces and the links between them provide common space for social interaction, movement and activity, for residents, workers and visitors. They can also encourage walking and cycling and contribute towards biodiversity and public health. The Council has done much in the past to improve the quality of the public realm, not least through pedestrianisation of the High Street, and is continuing to do so.

6.9

In accordance with Preferred Policy Objective BS2, the Council will seek to implement a public realm strategy for the town centre96. The Urban Design Framework (UDF) provides a starting point for a

93

Information is taken from Strategic Flood Risk Assessment, Level 1 Final Report, June 2008, prepared by Scott Wilson and Sutton Level 2 Draft Report, November 2008. 94 The Development Sites Schedule contains details in relation to individual sites. 95 Such an approach is also being considered in the context of the High Street Renewal Scheme (see para. 6.15, below).

96

See also paras 5.32-5.33, above.

Sutton Town Centre Area Action Plan – Preferred Options Document

41

comprehensive strategy, which would incorporate the kinds of environmental improvement currently being undertaken in the High Street97. 6.10

The public realm strategy can contribute to the Council’s sustainability agenda by incorporating One Planet Living principles98. In particular: •

•

•

6.11

•

Natural Habitats and Wildlife - the creation and protection of natural habitats by improving and linking green spaces; Culture and Heritage – Creating new spaces that contribute to local identity, while protecting the scale of High Street and views of churches; Health - Promoting healthy lifestyles by encouraging exercise through walking and cycling in a safe and comfortable environment.

Sutton town centre is characterised by different types of public space99: •

•

•

The pedestrianised High Street forms the main public space in the town centre and is the most highly used in terms of footfall; The High Street links a number of spaces including Zurich Square, the space outside Asda (hosting the town’s street market), Town

The quality of the spaces and streets is variable. The pedestrianised area is generally pleasant, with some good street trees, and the Town Square provides a useful focal space for the centre. However, some of the spaces along the High Street have a run-down appearance and do not function as well as they might. Moreover, away from the High Street, the gyratory road network is traffic-dominated and provides a barrier to pedestrian movement. The green spaces are attractive overall but poorly linked into the town centre. 6.12

The elements of a future public realm strategy, as set out by Gillespies in their Urban Design Framework, are illustrated in Fig. 6.1. The key aspects are: •

•

• 97

See para. 6.15, below. As set out in the draft Sutton’s Sustainability Action Plan (BioRegional, November 2008). 99 This analysis is based on Gillespies’ Urban Design Framework. 98

Square and Millennium Gardens; The main green spaces are situated to the east, west and north of the High Street comprising respectively Manor Park, St Nicholas Churchyard and Sutton Green; The network of routes and streets, many of which are traffic-dominated.

•

Improvement and enhancement of key public spaces and focal points; High Street pedestrian spine and public realm improvements; Improved east/west pedestrian routes; Environmental and public realm improvements along the gyratory road system;

Sutton Town Centre Area Action Plan – Preferred Options Document

42

•

•

redevelopment of the Civic Offices103; d) Continued improvements to the pedestrianised High Street and adjoining routes, on the model of the current Town Centre Renewal Project104; e) Improvements at the main town centre ‘gateways’, notably in the vicinity of Sutton Green, Manor Park, Sutherland House and the Holiday Inn; f) The ‘greening’ of the gyratory road system, involving reducing the carriageway width to facilitate tree planting in suitable locations.

Upgraded pedestrian priority crossings at key junctions; Improved approaches and gateways to the town centre.

These principles are reflected in urban design guidelines for each town centre ‘quarter’100. The strategy is likely to involve the creation of a green network to encourage biodiversity and connect public spaces, and the use of public art and lighting to encourage interest and activity. A co-ordinated approach is needed, involving the Sutton Town Centre Partnership and relevant external agencies. 6.13

A public realm strategy will be agreed as an integral part of the AAP.

6.14

Proposal 6.4: An integrated system of high quality spaces and pedestrian links should be established, in accordance with an agreed public realm strategy. Specific proposals should include: a) An expanded and improved Zurich Square, contingent on the removal of traffic from this part of the High Street101; b) A new Station Square, to be created via the redevelopment of Sutton Station102; c) A new Civic Square, to be created via the

Further design and appraisal, testing the operational cost and viability of certain aspects of the public realm strategy, will be needed to inform the next stage of AAP preparation. Successful implementation will require the use a variety of development and funding mechanisms. For example, some new public spaces and public realm enhancements may form an integral part of new developments. In other cases, improvements may be funded from Section 106 contributions and from capital programmes. Most aspects of the strategy will be contingent on new development taking place and, in view of the uncertainty this entails, a high degree of flexibility will be needed.

100

Set out in Ch 7, below. As proposed in para. 6.29, below. 102 See para. 7.25, below. 101

103 104

See para. 7.19, below. See para. 6.15, below.

Sutton Town Centre Area Action Plan – Preferred Options Document

43

Figure 6.1

Public Realm Principles

Town Centre Gateway

Key Approach

Focal point / public space

Public Realm Improvements to the High Street

Upgrade of pedestrian priority crossing

Key Public Realm connections

Improved pedestrian and cycle provision along streets

Environmental and Public Realm Improvements to the gyratory ‘green necklace’

Source: Sutton Town Centre Urban Design Framework (Gillespies, February 2009, Figure D3)

44

6.15

The Council is in the process of planning and implementing a High Street Renewal Project that exemplifies the kinds of improvement that could be encouraged throughout the town centre. This is a physical renewal project designed to improve the public areas along the High Street, with new lighting, planting, street furniture and events infrastructure. The town square will be enlarged, with bigger areas for performances and events, the areas around the railway station and outside Asda will be improved and there will be higher pedestrian priority at two major intersections. This scheme has been taken into account in the preparation of the UDF and provides a practical example of how the public realm elements of the UDF can be delivered in the future. Details of the programme are currently being finalised.

(‘demand management’) and introduce measures to encourage more walking and cycling. This approach reflects that of the CPS and London Plan and is consistent with the preferred policies of the Sites Development Policies DPD. 6.17

In this context, Tramlink is seen as the best way to provide the transport infrastructure necessary for large-scale town centre development to be acceptable. Insofar as it meets the growth in travel demand, it provides an alternative to creating more road space and car parks. Indeed, the absence of Tramlink may be seen as a constraint on the scale of new development.

6.18

The proposals outlined in this section are intended to help achieve AAP objectives. They are outline proposals that need more detailed design and testing106 and will, eventually, require funding through appropriate capital programmes107. They are intended to complement other measures pursuing similar objectives, such as Smarter Travel Sutton and the High Street Renewal Scheme, as well as related proposals of the AAP. They are suggested as preferred options108 for the purpose of public consultation.

Sustainable Transport 6.16

105

Sutton town centre is the most accessible location in the borough, especially for travel by public transport105. In order to ensure its future success, it will be important to maintain and improve accessibility, especially via sustainable modes of transport. This is reflected by Strategic Objective 5 and the more detailed policy objectives that were set out in Chapter 5. In summary, the preferred strategy is to improve public transport, change the gyratory road layout to reduce its environmental impact, reduce road space and limit car parking provision

See para.2.4, above.

106

As described in para.5.30, above. See para.9.9, below. 108 Reflecting Preferred Policy Objectives ST1 ST7 in Ch 5. 107

Sutton Town Centre Area Action Plan – Preferred Options Document

45

Public Transport Proposals 6.19

The Council’s transport consultants identified public transport options to support the future regeneration and growth of Sutton town centre. In particular, the study109 examined the feasibility of introducing trams into Sutton town centre, by extending the Croydon Tramlink system, and tested a number of detailed route options. Three of these options were set out, for consultation, in the Issues & Options Report. The consultation response reinforced the consultants’ recommendation for Option 1 as the preferred route option.

6.20

The Council’s support for the introduction of Tramlink into the town centre is reflected by Preferred Policy Objective ST1. The intention is to link the town centre with Rosehill and the existing Croydon to Wimbledon line. The Council recognises that this is a longer-term scheme that would require funding from Transport for London (TfL) and that this funding is uncertain110.

6.21

In the preferred option, the tram would follow the route of the gyratory road system along existing carriageways alongside general traffic, including buses. Southbound trams would run from Angel Hill in the north passing along High Street, Marshalls Road and the western (High Street) side of Throwley Way, crossing Carshalton Road into Chalk Pit Way and Sutton

109

Court Road to reach a new public transport interchange outside South Point on Sutton Court Road. It would then continue northbound into Grove Road and Sutton Park Road, crossing Cheam Road to pass up the eastern (High Street) side of St Nicholas Way and turning right into Crown Road and left up the High Street back to Angel Hill.

Atkins, ‘Development of Transport Options for Sutton Town Centre: Final Report’ (November 2008). 110 This remains an option post 2017.

Proposal 6.5: Sutton town centre should be connected to the ‘Tramlink’ system, and a route alignment should be protected. A preferred alignment is needed so that land can be safeguarded for the associated infrastructure. The preferred route alignment is shown in Fig. 6.2. Subsequent more detailed design work will look at a number of elements, including how cyclists can be accommodated in the road space. It will also take into account the proposals arising from the Urban Design Framework for the ‘greening’ of the gyratory system and for greater pedestrian priority and improved crossing points. This proposal is in accordance with Preferred Policy Objective ST1. 6.22

The proposed Tramlink extension would bring benefits to the town centre by: •

•

increasing accessibility for shoppers and other town centre visitors; providing better access to community facilities and services, in the town centre and elsewhere, including St Helier Hospital;

Sutton Town Centre Area Action Plan – Preferred Options Document

46

•

•

•

6.23

6.24

Traffic modelling suggests that the introduction of Tramlink would reduce the overall road network performance by restricting the flow of traffic, resulting in increased journey times. This would be exacerbated by the increase in traffic resulting from the development of town centre sites. However, the traffic model does not take into account any modal shift resulting from the introduction of Tramlink, which would provide a reduction in the amount of extra congestion and delay. Nor does it take into account potential for diverting through traffic away from town centre roads. Tram stops could be located on: •

• •

•

improving accessibility to the town centre, including its job opportunities, for residents of the more deprived wards in the north of the Borough which have been identified as having relatively poor accessibility; increasing the accessible workforce for town centre businesses; increasing the capacity of the public transport network to support future town centre development.

Throwley Way between Lodge Place and Greyhound Road (southbound direction); South Point Interchange (see below); St Nicholas Way opposite Church Street (northbound direction);

•

St Nicholas Way at junction with Crown Road (northbound direction); and High Street near Zurich Square (north and southbound direction). If this is not feasible, the alternative location could be Angel Hill.

Improved public transport waiting facilities, for buses as well as trams, would be provided as part of the introduction of Tramlink and linked with improvements to the public realm. There is a particular need to provide improved facilities in the northern part of the town centre. Proposal 6.6: Improved public transport waiting facilities should be provided in the north of the town centre. This proposal is in accordance with Preferred Policy Objective ST2. It could be delivered in conjunction with the creation of a public transport only route through Zurich Square. 6.25

The southern-most tram stop is proposed at South Point, in Sutton Court Road, and would form part of a larger proposed public transport interchange for buses, trams and trains. The interchange would be connected to Sutton train station by new pedestrian links, allowing ease of movement between the station and other forms of public transport. It is an important component of the proposals set out in the Development Framework for Sutton Station and Adjacent Land (Supplementary Planning Document), approved by the Council in 2005.

Sutton Town Centre Area Action Plan – Preferred Options Document

47

Proposal 6.7: A new public transport interchange should be provided to improve passenger facilities at Sutton Railway Station and link with trams and buses.

Proposal 6.8 – Improved bus priority measures should be introduced within the town centre and the associated infrastructure provided. This proposal is in accordance with Preferred Policy Objective ST1. It reflects the need to plan for improvements to other transport facilities and services until such time as Tramlink is constructed. The support of Transport for London would be required to bring about improvements to the level of town centre bus operation in the short-term.

This proposal is in accordance with Preferred Policy Objective ST2. It would be delivered through the redevelopment of the railway station111 and nearby properties112, and linked with the creation of a new Station Square113. The Supplementary Planning Document (SPD) contains more detailed information on this proposal. 6.26

In addition to the Tramlink route options, a bus only option was tested in the Atkins Transport Study. This could be seen either as an interim proposal, to improve public transport accessibility in the town centre in the short term, prior to the introduction of Tramlink, or as a cheaper long-term alternative to Tramlink. It would involve the use of the current gyratory system as a bus priority network. Suggested bus priority measures include the installation of bus gates with pre-signals to provide public transport priority, the extension of bus lanes on St Nicholas Way and Throwley Way, bus stop island platforms and localised carriageway widening. It would be fully integrated with the South Point public transport interchange and other current bus facilities.

Changes to the Town Centre Road Network 6.27

In order to meet the increased trip demand arising from new housing and commercial development, the emphasis will be on increasing the capacity of the public transport system and encouraging walking and cycling. The Council will not be seeking to increase town centre road capacity. However, some new links and other changes to the town centre road network are proposed in order to serve new development and facilitate environmental improvements elsewhere114. These proposals are shown diagrammatically in Figure 6.2. They are provisional proposals pending further design and appraisal.

6.28

One proposal is for a new road link, bridging over the railway line, between Grove Road and the area outside the entrance to

111

Development Opportunity Site S4 Including South Point (part of Development Opportunity Site S3), where a recent planning permission includes provision for a direct pedestrian link between trams and trains. 113 Proposal 6.4(b), above. 112

114

See para. 5.27 and Preferred Policy Objective ST3, above.

Sutton Town Centre Area Action Plan – Preferred Options Document

48

Sutton Station. This proposal has been carried forward from the Development Framework for Sutton Station and Adjacent Land SPD. Its purpose would be to remove traffic from the currently congested High Street, outside the station, enabling it to become a pedestrian-friendly public transport corridor115. This project has not been included in any capital programme, is likely to be costly to construct and would involve demolition of existing buildings.

gyratory network by extending St Nicholas Way north from its intersection with Crown Road, through the Gas Holder site, before turning to the east and connecting with the High Street opposite Benhill Road. It would enable northbound traffic to be removed from parts of Crown Road and the High Street and, in conjunction with Proposal 6.11, would enable the northern part of the High Street, through Zurich Square, to become a pedestrianfriendly public transport corridor118.

Proposal 6.9: A new road link should be constructed between the Brighton Road/High Street/Mulgrave Road intersection and Grove Road.

Proposal 6.10: A new road link should be constructed between St Nicholas Way and the High Street, north of Zurich Square.

This proposal would be in accordance with Preferred Policy Objective ST3. An alternative option could be to reroute traffic onto nearby local roads, though this would also require highway expenditure and would impact upon residential amenity.

This proposal would be in accordance with Preferred Policy Objective ST3. Implementation would be dependent on the redevelopment of Proposed Development Opportunity Sites N1 and N2. 6.30

6.29

A second proposal is for a new road link in association with the redevelopment of the Gas Holder and Magnet sites116. This was originally proposed by consultants advising on a strategy for the regeneration of the northern part of the town centre117. The proposed link would alter the town centre

115

The work could be linked with the redevelopment of Sutton Station and the creation of a new Station Square. 116 Development Opportunity Sites N1 and N2, respectively. 117 The North Sutton (Angel’s End) Study was undertaken by a consultancy team comprising Atkins and CB Hillier Parker. A Draft Options Report was produced in September 2003.

In order to remove all general traffic from the northern part of the High Street, it would be necessary to alter the town centre gyratory network by diverting traffic onto alternative local roads. It is therefore proposed to divert southbound traffic along Burnell Road and Lewis Road to reconnect with Throwley Way119. This would allow the ‘by-passed’ sections of High Street and Marshall’s Road to be reserved for public transport and, in conjunction with

118

Also in accordance with Proposal 6.4(a) Diverting traffic away from Zurich Square was originally suggested in the North Sutton Study.

119

Sutton Town Centre Area Action Plan – Preferred Options Document

49

Proposal 6.10, would enable environmental enhancements to be made over a wide area. However, the character of Burnell Road and Lewis Road would change and there would be an adverse impact on a number of residential properties. Modifications to road widths and alignments would be required, and further design work is needed to assess the detailed impact of this proposal.

specific proposals are set out in this document. Instead, some ideas and possibilities are explored in order to assist public consultation. 6.32

Proposal 6.11: The town centre gyratory road network should be modified by diverting southbound traffic via Burnell Road and Lewis Road This proposal would be in accordance with Preferred Policy Objective ST3. An alternative option could be to construct a new road link through the block bordered by Burnell Road, Lewis Road, Marshall’s Road and High Street. However, this would ideally be done in conjunction with new development and the land owners in question have indicated that they would oppose such redevelopment. Moreover, the proposal would still affect residential amenity along Lewis Road and would be harmful to local businesses.

Preferred Policy Objective ST4 recommends reducing road space in order to give more priority to alternative transport modes and to enable environmental improvements. Less road space may also mean slower traffic through the town centre, thereby providing an additional incentive for some people to leave their cars at home. The following roads appear to offer the most potential: •

•

Other Possible Transport Proposals 6.31

Other possible projects, stemming from the preferred policy objectives set out in Chapter 5, could be designed to limit car use and encourage walking and cycling. Pending more detailed investigation120, no

•

Grove Road, which is wide and traffic dominated. Careful design could increase the space for pedestrians and cyclists without disrupting traffic flows on this strategic route121. An improved public realm would be achieved, perhaps in conjunction with adjoining redevelopment proposals, and there would be more space for people awaiting buses. Sutton Court Road offers less potential, but changes could occur, especially in conjunction with adjoining redevelopment. St Nicholas Way and Throwley Way are wide vehicular routes that provide a poor environment and are barriers to pedestrian movement. There is scope to reduce road widths, in places, to

120

This would form part of the transport study proposed in para. 5.30, above.

121

Any proposal would need TfL approval.

Sutton Town Centre Area Action Plan – Preferred Options Document

50

provide more space for buses, pedestrians and cyclists.

creation of a successful ‘visitor circuit’123. 6.34

Preferred Policy Objectives ST6 and ST7 require proposals to encourage more cycling and walking. These will involve making changes to town centre roads and spaces to make walking and cycling more attractive. This would include giving greater priority to pedestrians and cyclists, improving crossing opportunities and reducing the amount of road space in appropriate places. Improved ‘legibility’ and a comfortable pedestrian environment would be an essential part of the town centre public realm strategy.

6.35

Sutton High Street now forms part of the London Cycle Network. Cycling can be encouraged by improving links into the cycle network and providing convenient and secure cycle parking facilities. Within traffic free areas, there is potential to remove current cycling restrictions. Indeed, the High Street Renewal Programme124 includes plans to remove the separate cycle lanes along the High Street and create a shared pedestrian and cycle zone.

In the longer term, road space would be have to be given up to accommodate Tramlink, and this should be taken into account in the design of more immediate proposals. 6.33

Preferred Policy Objective ST5 suggests restricting the amount of town centre car parking in order to help reduce demand for car trips. At the same time, there is a continuing need to provide sufficient public car parking at convenient locations in order to facilitate economic and social sustainability, helping Sutton town centre to flourish in a highly competitive environment. A review of future needs, in the context of the development opportunities, may reveal opportunities for the rationalisation and improvement of town centre facilities. For example, in preparing the Urban Design Framework, the consultants found potential to incorporate a new joint-use car park into the scheme for the redevelopment of the station car park122, to replace spaces that may be lost through redevelopment elsewhere. They also suggested the possibility of the joint-use of the privatelyowned Zurich car park, in the north of the town centre, where public parking provision is currently lacking. Locating car parks around the edge of the town centre would support the

123 122

Development Opportunity Site S4.

124

See Preferred Policy Objective RL3. See para. 6.15, above.

Sutton Town Centre Area Action Plan – Preferred Options Document

51

AD RO ILL NH BE

Figure 6.2

AD D RO EA LLM HA

BE NH ILL

TO REN SOR

Family Catholic D TO ROA REN SOR

BEN HILT ON GAR DEN S

Avond ale Court

BIS HO PS CL OS E

WO ODS IDE

24

BEN HILT ON GAR DEN S

UE EN A AV DR AN EX AL

26

DOV ERC OUR T LANE

RO AD

THE

AD RO

HIGH STREE

T

N GREE

NS DEA

STANMO RE GARDEN S

ROA D

Town Centre Boundary

EY SH BU

ROA D

AD RO

(tram / bus / private car)

D ROA

S EN RD GA

BRU NSW ICK ROA D

AD RO

E LAN

ON LT MI R CE AU CH

Shared Transport Corridor

RO AD

BRU NSW ICK

AD RO

HEY BUS

Direction of Movement OAKHILL ROAD

JENGAR CLOSE

AD RO

OAKHILL

LEWIS

ON LT MI

AD E RO AG AR VIC

GE ARA VIC

RO AD

SE ETCLO FLE BEN

PARSONS CLOSE

OA KH ILL

AD Y RO TOR REC

AD Y RO TOR REC

R CE AU CH

ROA D

Church

W OO D

165

Transport Proposals

CLO SE

HUNTING GATE MEWS

RO AD

BE NF LEE T CL OS E

VINE

D K ROA ROO PYLB

S EN RD R GA CE AU CH

ELG IN RO AD

S EN RD GA

TH OR ILW CH

STA YTO N RO AD

Indicative road link

GRO VE

DUCHESS

CLOSE

57a

Compton Court

1 to 10

BENH ILL WOOD

ALVIA GARDE NS

KESWIC K CLOSE

THICKET ROAD

BERY ROSE

GODSTONE ROAD

Potential Areas for Tram Stops (not to scale)

BRUNSWICK ROAD

AD N RO OW CR

49

55

Diverted traffic

BELSIZE GARDENS

ROAD

AD RO

MOUNT

57

CRES SING HAM

HIGH STREET

EY SH BU

RO AD

MILFORDGROVE

CO LL INGW OO D

GLENA

9

16

(LT)

61

AD E RO VAL

Sutton Garage

ENS GARD

THICKET CRESCENT

D

L'S ROA

MARSHAL

IVYDEN ECLOSE

32 33 43

E OS S CL NG WI

New lyn Hou se

MONTPELIER ROAD

OWLEY THR

ELM VE GRO

AD RO

AVON

NUE AVE HILL BEN

WAY

AH UL BE

STREET HIGH

D ROA

AD N RO OW CR

AD RO

Den ewo od Hou se

Y AS WA HOL ST NIC

D N ROA NDO BRA

EY DN SY

COX WIL

BEN

HILL

AVE

CLOSE

NUE

D S ROA GES BUR

CONSTANCE ROAD 93

LITCHFIELD ROAD

NURSERY ROAD

AD RO

NUE AVE HILL BEN

D ROA

FORD EEN GR

AD RO OFT RNCR THO

D AR CH OR

D ROA

WICK WAR

STREET

D ROAD NFOR GREE

CE REN CLA

LENHAM ROAD

D ROA

HIGH

DON HAD

AD P RO AM CH AU BE

AD RO

THE BROADWAY LOWER ROAD MANOR

E OR PLAC MAN

D GE ROA LOD

N ROAD MASO

AD E RO YD CL

LANE

32

OR LANE MAN

WILLIAM ROAD

PLACE

ON ROAD ERST PALM

WAY

D ROA

OWLEY

RT COU

HAM LEN

ALE TING NIGH

Sutton Grammar School For Boys

THR

and Cinemas

D ROA

D ROA

AD RO

D N ROA EAR ATH STR

Multistorey Car Park Multistorey Car Park

TLE MYR

LODGE

D K ROA WIC WAR

CE REN CLA

OD WO LLING CO

ntre as Ce Nichol Saint

Robin Hood Junior School

LIND D ROA

ROBIN HOOD LANE SE CLO

Manor Park Primary School

GREYHOU

VERNON ROAD

ND ROAD

t Stree

LINS MAR

SHOTT CLOSE

High

ET RE T ST ES W

1

LL S WA MA THO

N HOOD ROBI

LANE

SE CLO

t h Stree Churc

NS SSE GOO SE CLO

ST

LAS WAY

SE E CLO HOP

ST NICHO

E E PLAC CH TRE BEE

Times

E E LAN NPIK TUR

R WSE CLO

S MEW

OURT FALC

D K ROA OR PAR MAN

NY ALBA

L WAY SEL RUS

E D LAN IN HOO ROB

D ROA

20

ES JAM

Square

Robin Hood Infants' School

E CLOS

TANA MON

S DEN GAR OP'S BISH

E PLAC

CL OS E

Thomas Wall Nursery School

St Nicholas House

CAMDEN ROAD

OLAS ST NICH

ROAD

LEY OW THR

SHERWOOD PARK ROAD

St Nicholas Church

Surrey House

TON ROAD CARSHAL

WAY

D EY ROA OWL THR

College of Liberal Arts

D ROA

S DEN GAR

N ROAD GIBSO

D ED ROA ALFR

DING REA

DEN CAM

D N ROA TER WES

HILL ROAD

HIGH

LANGLEY PARK ROAD

Library

STR

Trinity Methodist Church

EET

Civic Centre

T ALBER ROAD

LAND MOR

AD

N RO

ROAD

HALTO

CARS

CHEAM ROAD

PIT CHALK WAY

AM CHE

Sutton Baptist Church

D ROA

D ROA

EET STR

S K MEW BAN

HIGH

RN STE WE

SUTTON

COURT ROAD

AD RO

D E ROA ORM

RK N PA SUTTO

LD FIE ME HO

AD M RO EA CH

RK PA

D VE ROA GRO NOR CUM

D ROA

Girls

EET

AD RO

H STR

ES' JAM

HIG

ST

For School High Sutton

SE D CLO MEA TOR

Sutton Station

UE EN E AV OV GR

D VE ROA GRO

NT RA AD E QU TH

D GE ROA BRID

D ROA

LEY PARK LANG

1 to 8

rt ar Cou Ced

D ROA

D ROA

ROAD

ROAD

RAVE MULG

AR CED

BRIGHTON

VE GRO

26

W EL LE SL EY RO AD

E LAN

ROAD

ST 'S ROO GAR BEG

MU LG RA VE

RO

AD

EY LESL WEL

ON EAT

D ROA

ENS R GARD CEDA

GAN CADO T COUR AMBLE SIDE GARDENS

ROAD

N ROAD ALBIO

LEY ROAD STAN

RAVE MULG

ON ROAD OVERT

12

ISH END CAV

CO NW AY

D ROA

VE DRI

ER ROAD CEST WOR

11

S DEN GAR

24a

S DEN GAR

ER ROAD CEST WOR

ISH END CAV

56a

Source: LB Sutton

D ROA

24b

LIE LES

D K ROA Y PAR GLE LAN

LIE LES

11

GRAN GE ROA D

8

N

Copyright Ordnance Survey 2008 100008655X

52

SEVEN

7.3

One significant proposed change is to the UDP policy covering high buildings within the town centre. Whereas the UDP126 defined a single high building zone, effectively covering the whole of the town centre within the gyratory road system and around Sutton Station, it is now proposed to define four ‘town centre quarters’, each with its own policy guidelines indicating the appropriate scale, height and character of built development, as well as the preferred balance of uses127.

7.4

The AAP will also designate a Primary Shopping Area128 in which new retail development should be concentrated. The AAP will also define revised primary and secondary shopping frontages, to which Preferred Policy DM37 of the Site Development Policies DPD will apply.

7.5

A small part of the Beulah Road/Clarence Road Area of Special Local Character (ASLC), near and adjoining St Nicholas Way, is included within the Sutton Town Centre AAP area129. While the character of this small area already differs from the rest of this ASLC, not least because of its proximity to a busy urban road, its continued inclusion within the ASLC is considered to be appropriate. This means that, if any new development is proposed, its design should

Town Centre Quarters Introduction 7.1

7.2

The area covered by the Sutton Town Centre Area Action Plan (AAP) is intended to be distinct from adjoining residential areas. Within the plan area, higher density mixed-use development would normally be allowed, subject to the usual development control considerations. This is consistent with the policy approach of the Core Planning Strategy (CPS)125 and is exemplified by Strategic Objective 1 and Preferred Policy Objective DG2. The policies to be applied within Sutton town centre, and which will be used for the purposes of development control, will be the relevant policies of the London Plan, CPS and Site Development Policies Development Plan Document (DPD). Together with the proposals and policy guidance set out in the AAP, they will supersede the policies of the current Unitary Development Plan (UDP).

126

Policies BE10 and TCS17. See Preferred Policy Objective DG1. 128 See Preferred Policy Objective RL1. 129 The ASLC boundary is shown in the Site Development Policies DPD, Appendix 4.5. 127

125

See para.5.8, above.

Sutton Town Centre Area Action Plan – Preferred Options Document

53

respect the character of the ASLC130. •

Town Centre Quarters 7.6

The town centre comprises distinct, interrelated character areas, which differ in terms of the scale and character of their buildings, spaces and uses. Building on these character areas, and taking into account their potential for change, the UDF has identified four town centre ‘quarters’ as a basis for influencing the design and use of new development. To quote the UDF: “The objective is to create a series of distinctive places within Sutton Town Centre or areas of well-defined character which have their own clear identity. …The intent of this principle is to create a mix of uses, which brings with it prolonged activity over the whole day, within new character areas easily distinct from one another. The aim is to encourage diversity within Sutton Town Centre and an interesting journey through the area.”

7.7

•

centre including the primary shopping area; Civic Quarter – the western part of the town centre, based around the civic offices; Station Quarter – the southern part of the town centre, including the area around the railway station, of particular importance for office employment and the evening economy.

7.8

In accordance with Preferred Policy Objective BS1, it is proposed that the character of future development in Sutton town centre should be guided by agreed urban design principles relating to each of the quarters. More detailed design guidelines have been prepared, based on the urban design analysis, as a material consideration for purposes of development control. These are set out, for consultation, in a separate consultation document131.

7.9

The purpose of this chapter is to describe development principles and design guidelines for each quarter. The urban design consultants focussed, in particular, on a key cluster of development sites within each quarter, preparing a kind of ‘mini development brief’ for each. This work exemplifies how urban design principles can be applied to development opportunities. The consultants’ ideas and recommendations have been used to inform the preferred options set out below.

The boundaries of the four ‘quarters’ are shown in Fig. 7.1. They are: • Village Quarter – the northern part of the town centre including a relatively poor secondary shopping area and some significant redevelopment opportunities; • Exchange Quarter – the central part of the town

130

Site Development Policies DPD, Preferred Policy DM4 – Historic Environment.

131

As described in the Introduction.

Sutton Town Centre Area Action Plan – Preferred Options Document

54

Figure 7.1

Town Centre Quarters Town Centre Plan Boundary

Village Quarter

Exchange Quarter

Civic Quarter

Station Quarter

N

Source: LB Sutton

Copyright Ordnance Survey 2008 100008655X

55

the UDF, the Preferred Option for the future development of the Village Quarter is summarised as follows:

North Sutton – Village Quarter 7.10

7.11

7.12

This quarter is centred on the High Street to the north of Marshall’s Road, extending west to include the Gas Holder site and the Collingwood Estate. The area incorporates a wide variety of uses, building forms and scales and, as such, does not have a unified identity. While many of the shops and houses are small in scale, they are interspersed with larger footprint retail outlets, office and residential towers and the gas holders. Sutton Green is an attractive open space marking the town centre’s northern gateway but is poorly connected to the rest of the town centre. The area around Zurich Square is dominated by traffic and has a rather run-down character. Overall, this quarter lacks legibility and cohesion.

Land Use Principles • • •

•

Main Development Proposals

Fig. 7.2 illustrates the potential for development and change in the Village Quarter, based on the recommendations of the UDF. It shows the location of the development opportunity sites identified in Ch. 8, and indicates a potential block layout and building height for each. It illustrates the potential for rerouting the main town centre road network in order to create a public transport and pedestrian area along parts of the High Street, Crown Road and Marshall’s Road. An enhanced Zurich Square would provide a new focus for this quarter. On the basis of the Preferred Policy Objectives suggested in Ch 5, the Proposals set out in Ch 6 and the recommendations of

Mainly residential-led mixed-use development132. A mix of housing types, including ‘family units’. Ground floor retail use along the High Street and around Zurich Square, with the potential to accommodate specialist and independent shops. Other uses will include small offices and workshops, providing opportunities for small businesses, as well as restaurants and leisure uses to support the retail function and provide an enhanced evening economy.

•

•

•

Rerouting of the gyratory road system, via a new link to the west of the High Street133 and by diverting traffic onto other roads to the east134, will bring a new pedestrian focus to Zurich Square135. Redevelopment of the Gas Holder and Magnet sites will create a new urban neighbourhood. Potential for a new public transport interchange near Zurich Square136.

132

Preferred Policy Objective RC1. Proposal 6.10. 134 Proposal 6.11. 135 Proposal 6.4 136 Proposal 6.6. 133

Sutton Town Centre Area Action Plan – Preferred Options Document

56

Figure 7.2

North Sutton Village Quarter Town Centre Boundary Quarter Boundary Proposed landmark building 3-4 storey building

N3

4-6 storey building

N4

7-10 storey building Indicative road link Diverted traffic

N1

N2

Indicative tree planting New / improved urban space High quality public realm Public transport only route Green space

N1 N2 N3 N4 Source:Based on Sutton Town Centre Urban Design Framework (Gillespies, February 2009)

N

Gas Holder Site Magnet Site Blockbuster Site Burger King Site Copyright Ordnance Survey 2009 100008655X

March 2009 Not to Scale

•

•

Improvements to Sutton Green137, and the creation of a green link along the High Street.

Central Sutton – Exchange Quarter 7.14

This quarter is centred on the High Street, between Marshall’s Road and Carshalton Road, extending east and west to include, respectively, Throwley Way and the northern part of St Nicholas Way139. It covers the town centre’s retail core and includes the two shopping centres, a variety of retail stores and supporting uses providing services and refreshments. The High Street has a relatively small-scale character, with typically two or three storey buildings enclosing a variety of small spaces, and provides the town centre’s most important public space. The St Nicholas Way and Throwley Way corridors are markedly different in character, bigger in scale and incorporating a variety of building styles. They contain two important multi storey car parks, the rear elevations of the two shopping centres and a variety of office, leisure and residential uses. They are wide trafficdominated streets, providing bus access to the shops but unwelcoming to pedestrians and generally lacking an active ground level frontage.

7.15

Fig. 7.3 illustrates the potential for development and change in the Exchange Quarter, based on the recommendations of the UDF. It shows the location of the development opportunity sites identified in Ch. 8, and indicates a potential block layout and building height for each. Among

Potential new public car park, to serve and encourage visitors to the quarter, perhaps linked with the existing Zurich facility.

Urban Design Principles

7.13

137 138

•

A fine-grained, permeable layout, with small streets, spaces and building footprints.

•

Active ground floor frontages along the main streets, to provide character and interest.

•

Opportunity to introduce terraced housing of 3-4 storeys adjacent to existing residential areas.

•

Elsewhere, new buildings should be 4-6 storeys in height, with the possibility of a taller ‘landmark building’ facing Sutton Green.

This is an area that requires a new purpose. The key to unlocking its potential is the redevelopment of the Gas Holder site and the associated rerouting of traffic. Together with nearby land, this would provide the basis for a new ‘urban village’ centred on a revitalised Zurich Square. It could also provide an opportunity for an exemplary low carbon development linked to a local energy network138.

Proposal 6.4. Proposals 6.1 and 6.2.

139

To the south of West Street, St Nicholas Way forms part of the Civic Quarter.

Sutton Town Centre Area Action Plan – Preferred Options Document

58

Figure 7.3

Central Sutton Exchange Quarter Town Centre Boundary Quarter Boundary

C6

Proposed landmark building 3-4 storey building 4-6 storey building

C1

C3

Indicative tree planting New / improved urban space

C7 C2

C4

High quality public realm Green space

C5

59

Source: Based on Sutton Town Centre Urban Design Framework (Gillespies, February 2009)

C1 C2 C3 C4

North of Lodge Place

C5

Houses adjoining Manor Park

C6 C7

North of Greenford Road

N

South of Lodge Place Kwikfit Site Times Square MSCP

Robin Hood Junior School Copyright Ordnance Survey 2009 100008655X

March 2009 Not to Scale

x Substantial streetscape improvements along St Nicholas Way and Throwley Way, involving planting and enhanced pedestrian areas.

these is the cluster of sites, to the east of the High Street, offering particular potential for the expansion of the retail core. 7.16

On the basis of the Preferred Policy Objectives suggested in Ch 5, the Proposals set out in Ch 6 and the recommendations of the UDF, the Preferred Option for the future development of the Exchange Quarter is summarised as follows:

Urban Design Principles x The small-scale of the pedestrian-friendly High Street should be retained141. x New development would generally be 4-6 storeys high away from the High Street, falling to 3-4 storeys adjacent to the High Street and to housing. x Improve the quality of eastwest pedestrian links. x Provide new active frontages along vehicle corridors and pedestrian links. x Tree planting and associated landscaping to soften the character of the vehicle corridors, in association with improved cycling and public transport infrastructure and pedestrian spaces. x Enhanced pedestrian zones and squares, including new areas in association with new development.

Land Use Principles x Main focus for comparison shopping and associated service uses140. x A mixture of retail, leisure and office uses should help create a ‘visitor circuit’. x New mixed use development should incorporate retail, leisure, office and residential uses, the balance depending on location in relation to the Primary Shopping Area (PSA). Main Development Proposals x An expansion of the PSA to the east of the High Street, centred on Lodge Place, where there is a cluster of development opportunity sites. The potential here is for high density mixed use development with retail units on the ground and first floors. x Potential for a landmark building in the north-west corner of Manor Park, replacing the existing houses and enabling the enlargement of the park. 140

Preferred Policy Objective RL1.

7.17

141

The main focus for development in this quarter is the consolidation and expansion of the town centre’s retail core, creating new retail frontages and public spaces. Equally important is the opportunity to change the character of the two road corridors, reducing their barrier effect and making them integral parts of the town centre.

Preferred Policy Objective BS3

Sutton Town Centre Area Action Plan – Preferred Options Document

60

the UDF, the Preferred Option for the future development of the Civic Quarter is summarised as follows:

Central West Sutton – Civic Quarter 7.18

7.19

7.20

This quarter extends from Cheam Road northward to West Street and is centred on the civic offices and St Nicholas Churchyard. It includes the southern part of St Nicholas Way and the houses to the east of Robin Hood Lane. It is a mixed civic, office, leisure and residential area and includes the library, theatre and bowling centre. Excluding the residential part, it is dominated by large footprint buildings, including the Holiday Inn Hotel, the Gibson Road Multi Storey Car Park and commercial office blocks. The Civic Offices are linked to the High Street via a subway under St Nicholas Way, which is wide and provides a barrier to eastwest movement. Service roads and surface car parking dominate much of the outdoor space and, while the churchyard provides a pleasant green space, it is poorly related to the rest of the area.

Land Use Principles •

• •

Main Development Proposals •

•

Fig. 7.4 illustrates the potential for development and change in the Civic Quarter, based on the recommendations of the UDF. It shows the location of the development opportunity sites identified in Ch. 8, and indicates a potential block layout and building height for each. It also shows the potential for a new Civic Square, expanded green space and other proposals stemming from the public realm strategy. On the basis of the Preferred Policy Objectives suggested in Ch 5, the Proposals set out in Ch 6 and the recommendations of

A mixture of cultural and entertainment activities, providing for a familyfriendly evening economy. A focus for civic and community uses. Ancillary uses would include offices, shops, restaurants and flats

•

A new Civic complex, incorporating a landmark building and new Civic Square142, linked to the High Street via a raised pedestrian crossing to replace the existing subway. The creation of a significant new green space on the current site of the St Nicholas Church Hall, which would be relocated within the new Civic complex. New development alongside St Nicholas Way, providing an active frontage and enhanced pedestrian environment, together with ‘greening’ and traffic calming measures.

Urban Design Principles •

142

The landmark building at the south west corner of the Civic Centre site could extend up to 10 storeys.

Proposal 6.4.

Sutton Town Centre Area Action Plan – Preferred Options Document

61

•

•

•

7.21

Elsewhere, building heights would not exceed six storeys, stepping down to 34 storeys adjacent to St Nicholas Churchyard to protect the setting and views of the church. The new spaces would be integrated with the High Street and neighbouring residential areas via a seamless series of active streets, spaces, pedestrian and cycle routes. Improved east-west links, in association with the calming of traffic on St Nicholas Way and public realm improvements leading into the High Street.

Much of the potential development land in this quarter is owned by the Borough Council, providing a particular opportunity for an integrated approach to new development. Indeed, the creation of a distinct ‘quarter’ depends on the redevelopment of the Civic Centre site. There is potential to incorporate an exciting mix of uses, including a ‘cultural hub’ to replace the Secombe Theatre, the site of which would then become available for redevelopment. The Primary Care Trust has indicated its support for the clustering of cultural and leisure facilities with health. There is also a clear opportunity to promote an exemplar low carbon development in accordance with Proposal 6.1.

South Sutton – Station Quarter 7.22

This quarter is located south of Carshalton/Cheam Roads and is centred on Sutton Railway Station. It is the main office location and entertainment area, with a variety of bars, restaurants and nightclubs, and includes substantial secondary shopping frontages. It is characterised by a number of high buildings which are particularly prominent given the area’s elevated position. However, the area opposite the station entrance and along the High Street is of a smaller-scale character. This quarter is particularly affected by its road network, with peak hour traffic congestion outside the station and the strategic east-west routes creating a barrier to pedestrian movement. The quality of the public realm is generally poor.

7.23

Fig. 7.5 illustrates the potential for development and change in the Station Quarter, based on the recommendations of the UDF. It shows the location of the development opportunity sites identified in Ch. 8, and indicates a potential block layout and building height for each. It also shows the potential new road link and proposals stemming from the public realm strategy.

7.24

On the basis of the Preferred Policy Objectives suggested in Ch 5, the Proposals set out in Ch 6 and the recommendations of the UDF, the Preferred Option for the future development of the Station Quarter is summarised as follows:

Sutton Town Centre Area Action Plan – Preferred Options Document

62

Figure 7.4

Central West Sutton Civic Quarter Town Centre Boundary

CW3

Quarter Boundary Proposed landmark building 3-4 storey building 4-6 storey building 7-10 storey building Indicative tree planting New / improved urban space High quality public realm Green space

CW2

CW1

Civic Centre Site

CW2

Secombe Theatre Site

CW3

CW1 Source: Based on Sutton Town Centre Urban Design Framework (Gillespies, February 2009)

N

Beech Tree Place / West Street

Copyright Ordnance Survey 2009 100008655X

March 2009 Not to Scale

Land Use Principles •

•

•

•

However, building heights would be varied overall, with lower buildings elsewhere appropriate to character and location. A range of building heights are proposed on the potential development sites, ranging from 4-6 storey along Grove Road and Brighton Road to over 10 storeys along Sutton Court Road and near the railway station. Any development affecting the High Street would be expected to respect its small-scale character147.

•

Public realm improvements should accompany all new development, notably along Grove Road and Sutton Court Road and at the Brighton Road and Manor Park ‘gateways’.

A mixed-use office and entertainment quarter, with a focus on employment143. A location for bars and restaurants, providing a focus for the evening economy144. An increase in the residential population through mixed-use schemes – to introduce diversity and increase viability of mixeduse development.

Main Development Proposals •

•

•

A new road link to enable the enhancement and partial pedestrianisation of the High Street and its use as a public transport only route145. A landmark building on the site of the railway station, incorporating an improved public transport interchange and a new public square146. Greening and traffic calming of east-west traffic routes and Brighton Road.

7.25

Urban Design Principles •

A location for a cluster of tall buildings, potentially exceeding 20 storeys at the railway station, which would be the tallest in the town centre. This would provide a focus for a cluster of tall buildings, which would include existing South Point and Quadrant House.

Primary Shopping Area and Retail Frontages 7.30

143

Preferred Policy Objective BE2. Preferred Policy Objective RL4. 145 Proposal 6.7. 146 Proposal 6.4.

The railway station and its associated car park provides the opportunity for a large-scale integrated development of high quality, including a new station within a landmark building and an important new public square. It also provides an opportunity for an exemplar low carbon development in accordance with Proposal 6.1

144

147

A primary shopping area (PSA) is a defined area where retail development is concentrated. It will normally comprise the primary shopping frontage together with those secondary frontages that are contiguous and closely related to the primary

Preferred Policy Objective BS3.

Sutton Town Centre Area Action Plan – Preferred Options Document

64

Figure 7.5

South Sutton Station Quarter Town Centre Boundary Quarter Boundary

S2

Proposed landmark building

S3

S1

4-6 storey building 7-10 storey building 11+ storey building Indicative tree planting New / improved urban space

S4

Indicative road link High quality public realm

S5

Green space

S6 S7

Source: Based on Sutton Town Centre Urban Design Framework (Gillespies, February 2009)

Public transport only route

S1 S2 S3 S4 S5 S6 S7 N

North of Grove Road North of Sutton Court Road South of Sutton Court Road Sutton Station and Car Park Shops opposite Station Sutherland House Brighton Road MSCP Copyright Ordnance Survey 2009 100008655X

March 2009 Not to Scale

frontage148. A PSA has been defined for Sutton town centre in order to indicate the main location for comparison shopping, to guide new development accordingly and to protect retail activity from competing non-retail uses. This is shown in Fig.7.6, which also shows the extent of primary and secondary shopping frontages within the town centre.

a primary shopping frontage, unless they are on a designated secondary frontage. 7.33

It is proposed that a primary shopping area should be designated, centred on the High Street, as shown in Fig. 7.6. 7.31

The proposed PSA covers the heart of the town centre shopping area and includes a wide range of retail stores and ancillary uses. It is bounded to the south by Throwley Road and Hill Road, to the west by St Nicholas Way, to the north by Greenford Road and Benhill Avenue and, to the east, by Throwley Way. It includes both the St Nicholas and Times Square Shopping Centres. Outside this core area, there is a higher proportion of non-retail uses. Peripheral parts of the PSA are designated as secondary shopping frontages.

7.32

Within the PSA, the objective will be to protect the concentration of Class A1 retail uses in order to safeguard Sutton’s status as a higher-order Metropolitan Shopping Centre. Development proposals within the PSA will be treated as if it they are located on

The proposed primary and secondary frontages are similar to those shown in the Unitary Development Plan (UDP) Proposals Map, with the following suggested minor amendments: • The primary frontage would be extended along both sides of Lodge Place, to the east of the High Street, reflecting the identification of potential development sites149. • A secondary frontage would be extended along the eastern side of St Nicholas Way, between West Street and St Nicholas Churchyard, recognising the inclusion of this area within the Civic Quarter and its designation as a potential development site150. • A secondary frontage would be deleted from the northern side of Cheam Road, to the west of the Civic Offices, reflecting its lack of existing retail character and remoteness from the High Street. • A secondary frontage would be deleted from both sides of Sutton Court Road, to the east of Chalk Pit Way, reflecting its lack of existing retail character and remoteness from the High Street.

148

Planning Policy Statement 6, Table 2. The PSA also includes premises that are not on a designated frontage, e.g. within the shopping centres.

149 150

C1 & C2 (Ch 8). CW3 (Ch 8).

Sutton Town Centre Area Action Plan – Preferred Options Document

66

Figure 7.6

Proposed Primary Shopping Area and Shopping Frontages AAP Town Centre Boundary Primary Shopping Area Primary Shopping Frontage Secondary Shopping Frontage

N Source: LB Sutton

Copyright Ordnance Survey 2008 100008655X

67

This page is intentionally left blank for printing purposes.

Sutton Town Centre Area Action Plan – Preferred Options Document

68

EIGHT

considered to be both feasible and desirable during the plan period. They follow on from the Potential Development Areas identified in the Issues & Options Report, taking into account the consultation response and further examination of individual sites. They include sites previously identified in the Unitary Development Plan (UDP) and in more detailed studies152, together with sites that, by reason of their location and character, would be suitable for more intensive development. Some major sites, of crucial importance to the achievement of plan objectives, are included even though there are doubts about their future availability. In these cases, the Council will be pro-active in overcoming development constraints.

Development Proposals – Opportunity Sites Introduction 8.1

8.2

The identification of the town centre ‘quarters’ and the analysis of their future potential depends, to a large extent, on the prospects for future development on a number of key sites151. Twenty-one Opportunity Sites are proposed in this document as preferred options. These have been numbered according to the ‘quarter’ in which they are located and are shown in Fig. 8.1. Each site is identified and briefly described below. Further details are included in the Schedule of Development Opportunity Sites at the end of this document.

8.3

A number of other town centre sites, which may also have potential, are mentioned below but are not proposed for development. These include sites where development would, in principle, be acceptable but may not be deliverable within the plan period. There are also sites where redevelopment is likely to conflict with important plan objectives, especially regarding employment. These sites are not preferred options but were included within the scope of the UDF and are identified here for the purpose of public consultation.

8.4

The Schedule of Development Opportunity Sites includes, for

The proposed sites are those where development is

151

For each of the four quarters, there is a particular cluster of linked or nearby sites that would form the basis for realising the vision for its future. Within the Urban Design Framework, a design-led ‘mini brief’ has been prepared for each of these four clusters, setting out the important urban design principles that should apply and proposing indicative development schemes.

152

Development Framework for Sutton Station and Adjacent Land (Supplementary Planning Document) 2005; North Sutton (Angel’s End) Study (Draft Options Report) 2003.

Sutton Town Centre Area Action Plan – Preferred Options Document

69

each of the preferred sites, an assessment of development potential, capacity and possible phasing. They are preliminary capacity estimates reflecting the development principles proposed, for each ‘quarter’, in Chapter 7 and the design proposals of the UDF – the height and footprint of possible buildings on each site, together indicating a potential floorspace. It must be emphasised that these estimates are untested and should be seen as indicative at this stage. Taken together, they suggest that the development capacity of all identified sites would exceed development requirements during the plan period. However, it is unlikely that all sites would become available for development. This is discussed more fully at the end of this chapter. 8.5

The final version of the AAP will need to adopt a flexible approach to identifying suitable sites, recognising the uncertainties that will continue to exist. During the next stage of plan preparation, further more detailed work will be undertaken to clarify the potential of each site in the context of overall town centre needs and objectives. This is likely to involve further discussions with landowners and a more detailed assessment of development viability, taking into account possible future market conditions. The work will also reexamine the constraints on development and will investigate ways in which the Council can help overcome obstacles to achieving desirable developments.

North Sutton – Village Quarter 8.6

Gas Holder Site (N1): This site is located north of Crown Road, adjoining the Collingwood housing estate to the west, the Zurich office site to the east and the rear of two-storey houses in Vale Road to the north. Two gasholders dominate the site and a number of small outbuildings are used for industrial/storage purposes.

8.7

The site was first allocated for development in the UDP and was viewed as a key development site in the North Sutton study153. However, it is still in operational use and recent indications are that the owners no longer envisage its release for development in the foreseeable future. It is a key site that would unlock the potential for the regeneration of North Sutton, and the Council will be pro-active in lobbying for the release of the site.

8.8

Magnet Site (N2): This site is located on the southern corner of Vale Road and the High Street, to the north of the Zurich building. The western boundary adjoins the rear of two storey mainly terraced houses in Vale Road. The site is within a secondary shopping frontage and is currently occupied by a large format kitchen showroom and associated car park. There has been pressure for redevelopment involving a replacement showroom with residential above.

153

North Sutton (Angel’s End) Study, prepared by Atkins, September 2003.

Sutton Town Centre Area Action Plan – Preferred Options Document

70

Figure 8.1

Proposed Development Opportunity Sites N3 N4

N1

Town Centre Plan Boundary North Sutton - Village Quarter N1 Gas Holder Site N2 Magnet Site N3 Blockbuster Site N4 Burger King Site

N2

Central Sutton - Exchange Quarter C1 North of Lodge Place C2 South of Lodge Place C3 KwikFit Site C4 Times Square MSCP C5 Houses adjoining Manor Park C6 North of Greenford Road C7 Robin Hood Junior School

C6 C7

C1

C3

C2 C4 CW3 C5 CW2

CW1

S2

S3

S1

S5

Central West Sutton - Civic Quarter CW1 Civic Centre Site CW2 Secombe Theatre Site CW3 Beech Tree Place/West Street South Sutton - Station Quarter S1 North of Grove Road S2 North of Sutton Court Road S3 South of Sutton Court Road S4 Sutton Station and Car Park S5 Shops opposite Station S6 Sutherland House S7 Brighton Road MSCP

Source: LB Sutton

S4

S6

S7

N

Copyright Ordnance Survey 2008 100008655X

71

8.9

Blockbuster Site (N3): This site is located on the northern corner of Vale Road and the High Street, near the Magnet Site to the south and the Burger King site to the east. It consists of a retail shop fronting the High Street (a secondary shopping frontage), with a customer car park to the rear. There is an opportunity to provide an active frontage to Sutton Green, perhaps as part of a “gateway” development. There has been pressure for redevelopment involving residential units above shops.

8.10

Burger King Site (N4): This site, located on the eastern side of the High Street opposite the Blockbuster Site, contains a single storey building operating as a fast food ‘drive-thru’ outlet. The northern and southern boundaries adjoin shops and the eastern boundary, to the rear of the site, is partially adjoined by dwellings fronting Lewis Road. There has been interest in the redevelopment of the site, with potential for retail units on the ground floor (secondary shopping frontage) with residential and/or offices above.

8.11

•

Other Village Quarter sites, which may also have potential for development but which are not proposed for development as part of the Preferred Options, are: •

The Collingwood Estate. This is a mainly Council owned housing estate comprising a number of blocks of varying height and condition. Car parking areas are prominent and

•

pedestrian links are poor. There is potential for environmental improvements, creating more coherent links and spaces, which could be carried out in conjunction with the redevelopment of the neighbouring Gas Holder site. The consultants suggest potential for selective redevelopment, retaining most existing buildings but increasing the overall number of housing units on the site. While this would have urban design benefits, it is not favoured as a proposal because of the potentially disruptive impact on existing occupiers. The Bushey Road Bus Garage. This is located within a predominantly residential area, and bus movements adversely affect residential streets. However, the facility meets an operational need and both the operator and Transport for London have indicated that the site is unlikely to become surplus to requirements. The Council would prefer, in the longer term, to see the residential redevelopment of this site, which is allocated accordingly in the Site Development Policies DPD. Land adjoining Zurich House. In the context of the proposed new road link, the consultants indicate potential for new buildings abutting the road, some of which would be on land used by Zurich. However,

Sutton Town Centre Area Action Plan – Preferred Options Document

72

•

this land is not proposed for development because it is in operational use for access to the Zurich car park. Parts of the Matalan and Champions Timber Yard car parks. The land fronting Lewis Road has potential for development, as recognised in the Issues & Options Report. However, this land is in operational use and the owners have indicated they do not wish their businesses to be disrupted. It is therefore not included as a development opportunity site.

frontage) and four retail units fronting the High Street (primary shopping frontage). There is an opportunity for a comprehensive redevelopment incorporating large ground/first floor retail units in a prime High Street location and attractive to national High Street retailers. The site is in a single ownership and there has been interest in its redevelopment for retail use with small office/residential above. 8.14

KwikFit Site (C3): This site is located on the eastern side of Throwley Way and is adjacent to the Times Square MSCP. Dwellings adjoin the site to the east. It is Council-owned and it is understood that the lease will end soon. This site was part of a larger development site identified in the UDP. In the UDF, the consultants suggest combining this site with the Times Square MSCP to create a larger development footprint and create a better link between the town centre and nearby residential areas.

8.15

Times Square MSCP (C4): This site is bounded by Greyhound Road to the south and Lenham Road (and residential buildings) to the east. Times Square Shopping Centre is across Throwley Way, connected by two elevated footbridges. KwikFit adjoins the site to the north.

8.16

This site was identified in the UDP, and the car park building is now in need of refurbishment. Any redevelopment should incorporate replacement car parking provision. Alternatively, it has been suggested that the car park could be renovated with

Central Sutton – Exchange Quarter 8.12

8.13

North of Lodge Place (C1): This site is located to the east of the High Street, extending from Manor Place in the north to Lodge Place in the south and adjoining Throwley Way to the east. It is occupied by two lowrise buildings and there is potential for more intensive development. The external boundary of the site is a secondary shopping frontage. Together with the land opposite, to the south of Lodge Road, this site provides the best opportunity for the expansion of the Primary Shopping Area. South of Lodge Place (C2): This site is also located to the east of the High Street, comprising most of the land between Lodge Place and the Marks & Spencer store. It is occupied by two ‘warehousestyle’ retail units fronting Lodge Place (secondary shopping

Sutton Town Centre Area Action Plan – Preferred Options Document

73

The site could also accommodate a large-scale leisure use. It is Council owned and redevelopment could not take place until the school is relocated to a suitable site within its catchment.

additional building above for offices. The impact on nearby residential properties should be minimised. 8.17

Houses adjoining Manor Park (C5): This site is located on the north-western corner of Manor Park, and contains a row of mainly semi-detached houses which are a mix of Council and privately owned. The houses are accessed from Throwley Way or Greyhound Road. More intensive development on the corner would provide an opportunity to expand the park.

8.18

North of Greenford Road (C6): This is a small site comprising a vacant yard and workshop, together with a pair of semidetached houses, one of which is used as an office. The site is opposite the Debenhams service entrance and adjoins the Asda service yard. It falls within a secondary shopping frontage.

8.19

Robin Hood Junior School (C7): This site is located on the western side of St Nicholas Way, opposite the St Nicholas Shopping Centre. There are dwellings immediately to the north and west and the St Nicholas multi-storey car park adjoins to the south. This site was identified in the UDP and offers potential for high density mixed-use development, perhaps related to the adjoining car park/cinema and to the shopping centre opposite (which is linked to the car park via a pedestrian bridge). It occupies a secondary shopping frontage and redevelopment could help improve the pedestrian environment of St Nicholas Way.

8.20

Other Exchange Quarter sites, which were considered in the UDF but which are not proposed for development as part of the Preferred Options, are: •

•

Times Square. This shopping and office complex occupies a large block to the east of the High Street. Redevelopment of this site could bring urban design benefits, with a mix of high quality retail, leisure, offices and residential uses, the introduction of additional east-west connections and the creation of an active frontage to Throwley Way. However, it is not identified as a development opportunity site because it provides valuable retail and office uses and there has been no interest in redevelopment from its owners. Houses fronting the west side of St Nicholas Way. These are the houses to the north of Robin Hood Junior School. The urban design consultants have indicated potential here for higher density residential redevelopment. While redevelopment may be acceptable, this land is not promoted as a development opportunity site.

Sutton Town Centre Area Action Plan – Preferred Options Document

74

the surface car park. This may enable the relocation of the theatre (below) but it would fail to realise the site’s potential and would not facilitate the public realm improvements essential for the revitalisation of the Civic Quarter. Another alternative, favoured by the consultants, would be to include the Holiday Inn Car Park within the overall development scheme (see 8.26, below).

Central West Sutton – Civic Quarter 8.21

8.22

8.23

Civic Centre Site (CW1): This site occupies the northern corner between Cheam Road and St Nicholas Way (opposite Hill Road). It includes the Council offices, library, College of Adult Education and the surface car park between the Council offices and the Holiday Inn to the west. Any development must take into account the proximity of St Nicholas churchyard, to the north, and the potential to improve the character and disposition of green space in the town centre. It should also seek to improve the town centre’s east-west linkages, to enhance pedestrian mobility and town centre legibility. The consultants identified potential for a landmark development, covering the whole of the site, to incorporate a mixture of civic, cultural, community and ancillary uses, with associated hard and green spaces and better links into the town centre. A new Civic Square would be created, linking into the town square via an enhanced pedestrian street. They suggest relocating the church hall into the redevelopment in order to enlarge and enhance the green space. Any development should meet the highest environmental standards. A more detailed assessment of scope and viability is needed, including the funding options. If a comprehensive development is not viable, an alternative approach could be to retain existing buildings and develop

8.24

Secombe Theatre Site (CW2): This site is located to the west of the Holiday Inn Hotel, fronting Cheam Road. To the north, the site adjoins the Gibson Road MSCP and a residential rear garden. A church lies to the west. This site would become available for redevelopment if it became possible to relocate the theatre elsewhere.

8.25

Beech Tree Place/West Street (CW3): This site is located on the western side of St Nicholas Way, immediately north of the St Nicholas Churchyard. It consists of residential properties along Beech Tree Place and two pairs of semi-detached houses immediately to the north, on West Street. Most of the properties are owned by the Council and used as sheltered and supported housing. Two of the houses on West Street are owned by the Council and leased to voluntary groups, and there is planning consent to create a ‘voluntary sector hub’.

8.26

One additional site, included within the scope of the UDF, may also have potential for development but is not proposed as a development opportunity

Sutton Town Centre Area Action Plan – Preferred Options Document

75

site. The consultants have suggested that the Holiday Inn Hotel Car Park could be redeveloped to complete the block, creating a new hotel frontage along a pedestrian street facing the new Civic complex. Although this has urban design advantages, it is not clear whether such a development would be feasible and no discussions have been held with the hotel operator.

uses, including offices, as well as a secondary shopping frontage. 8.29

South of Sutton Court Road (S3): This site extends between the rear of High Street shops and the office block opposite B&Q. It includes the South Point tower and the vacant land to either side of it (demolished office buildings), together with the land to the east that is partially occupied by subdivided dwellings. The Council has granted permission for the renovation of the South Point tower as offices and the construction of two new residential towers (with retail units on the ground floor and provision for a tram stop and link to the railway station). On the eastern part of the site, an application for a residential tower (with ground floor retail units) has recently been refused on a number of grounds, including design and the lack of employment uses.

8.30

Sutton Station and Car Park (S4): This site consists of two parts whose redevelopment potential is linked. To the west, Sutton Station fronts the southern end of High Street, opposite a parade of shops spanning the railway line. The surface car park, used by rail passengers, is located to the east of the station, to the south of the railway line and north of a residential estate. The whole site is owned by Network Rail and was identified as an opportunity site in the UDP.

8.31

This is a key redevelopment opportunity that could deliver a substantial amount of new

South Sutton – Station Quarter 8.27

8.28

North of Grove Road (S1): This site is a row of low-rise shops and former houses, in a variety of ownerships. It backs onto Morrisons, includes the entrance to the Morrisons Car Park and extends almost the whole length of the road. The strip of shops is a secondary shopping frontage, and new development increase the scale and amount of floorspace to provide a range of retail, leisure, office and residential uses. Redevelopment could help bring about environmental improvements in Grove Road, creating new pedestrian spaces and reducing the dominance of motor vehicles. North of Sutton Court Road (S2): This site lies between the rear of High Street shops and the Police HQ building, opposite the South Point site. It consists of two older and underused office blocks and adjoining vacant land. There has been interest in building a residential tower on the vacant site. However, this is an important employment area and any redevelopment would have to incorporate employment

Sutton Town Centre Area Action Plan – Preferred Options Document

76

floorspace and help transform the southern part of the town centre. In particular, the urban design consultants have suggested a landmark tower over a new railway station with a new ‘station square’ in front of the station entrance and improved pedestrian linkages154. Network Rail has indicated that they support the principle of a largescale redevelopment, incorporating a new station, but have expressed reservations concerning viability. 8.32

8.33

Shops opposite station (S5): This site comprises a parade of shops, opposite the railway station, extending over the railway tracks and into Mulgrave Road. It is a designated secondary shopping frontage. Redevelopment would depend on the construction of the new road link into Grove Road155, which would enable the removal of most traffic from this part of the High Street. Sutherland House (S6): This site is located to the east of Brighton Road, on its northern corner with Cedar Road. It adjoins former residential properties in Cedar Road, residential flats across Cedar Road to the south and a row of shops with flats above across Brighton Road to the west. The site is occupied by an empty 12storey office tower with a 4storey podium in front. This is a secondary shopping frontage with occupied shop units at street level.

8.34

This is an important town centre ‘gateway’ site that would benefit from a ‘landmark’ development providing a mix of uses. A planning application for the conversion, reconfiguration and extension156 of the existing building, to provide flats, a hotel and restaurant, retail units and offices, was refused by the council. However, although a subsequent appeal was dismissed157, the appeal inspector found that the proposal would not harm the character and appearance of the area or the living conditions of the occupiers of nearby residential properties.

8.35

Brighton Road MSCP (S7): This site is occupied by a public multi-storey car park, owned and operated by the council. It is located at the southern end of the town centre, to the east of Brighton Road. The site adjoins a service station to the north, railway tracks to the west and residential units to the south. The car park is usefully located to serve the southern part of the town centre, especially office workers, but it is underused and the site could be redeveloped if alternative public parking was provided nearby.

8.36

Other sites in the Station Quarter, which may have potential for development but which are not proposed for development as part of the Preferred Options, are:

156

154 155

Proposal 6.7. See para. 6.28 and Proposal 6.9.

Extending up to 20 storeys (part of the tower) and 7 storeys (the podium). 157 Due to lack of a completed Planning Obligation.

Sutton Town Centre Area Action Plan – Preferred Options Document

77

•

•

•

•

• The Cheam Road frontage

The BP garage site on Brighton Road. Part or all of this site could be developed in conjunction with the adjoining car park, if a larger redevelopment site was required. However, this is not proposed as a separate development opportunity site. Land adjacent to Quadrant House. The urban design consultants explored the possible redevelopment of some small sites, including the shops fronting Brighton Road, for higher density mixed use buildings. Because existing businesses could be adversely affected, these are not proposed as development opportunity sites. Land to the south of Grove Road. This block includes the Royal Mail sorting office and the adjoining office building. Redevelopment could mean the loss of existing businesses and there appears to be no particular advantage in its identification as a development opportunity site. The site of City House, on the corner of Sutton Park Road and Cheam Road. This may provide an opportunity for a new ‘landmark building’. However, it would mean the loss of an attractive and popular office building that already marks this gateway to the town centre.

of Morrisons. This 2-storey frontage could be increased in height to provide additional mixed-use accommodation. However, development may adversely affect the operation of the business and it is not proposed as a development opportunity site.

Conclusions on Development Capacity 8.37

Reference was made, in 8.4 above, to the indicative site development capacity estimates contained in the Schedule of Development Opportunity Sites at the end of this document. These are summarised in Table 8.1. The figures are for the net increase in floorspace that would arise if all sites were to be developed in accordance with the estimates set out in the Schedule. They are summarised by ‘quarter’ and broad use class.

8.38

The figures are for gross external floor area. Class A includes retail shops, service offices (such as banks and estate agents) and food & drink establishments. Class B1 relates mainly to offices, but may include light industry. Class C2 refers to residential dwellings.

Sutton Town Centre Area Action Plan – Preferred Options Document

78

Table 8.1 Potential net increase in Town Centre Floorspace (sq m) resulting from the development of all opportunity sites Class A Class B1 Class C3 Other Use Total Classes Village 1,700 2,900 22,600 1,800 29,000 Quarter Exchange 6,800 19,300 23,900 9,000 59,000 Quarter Civic 5,200 7,200 7,700 13,100 33,200 Quarter Station 9,000 22,300 104,400 20,400 156,100 Quarter Total 22,700 51,700 158,600 44,300 277,300 8.39 These indicative figures show that new town centre floorspace would be dominated by residential (57% of total net increase), which is expected to be the main driver for mixed use development. The increase in non-residential floorspace would be an estimated 28% over existing commercial floorspace158. Most of the increase, in all use classes, would take place in the south of the town centre (Station Quarter), where the scale of new built development would be greatest. A comparison with indicative development requirements159 shows that the development of all the opportunity sites to their full capacity would result in a total additional floor area that exceeds expected demands. 8.40

158 159

This apparent mismatch reflects the uncertainty surrounding future development and the need to ensure sufficient sites are available to meet future needs. The AAP must be flexible and allow for contingencies. Much of

the additional floorspace would arise on a few large sites where there is some uncertainty. For example, in the Station Quarter, over half the additional floorspace would be on one site (S4 Sutton Station and Car Park) where a substantial collaborative effort will be needed from a number of parties to ensure that a successful development takes place. Similar considerations apply to other important opportunity sites, in each of the ‘quarters’, notably sites N1 (Gas Holder Site) and CW1 (Civic Centre Site). 8.41

Looking at each of the broad use classes, the figures indicate that sufficient sites could be available to meet future development needs. Residential forms the largest use in terms of floorspace. If all sites were to be developed as suggested, they could provide up to 1,800 additional units based on the assumptions set out in the Schedule. This figure falls slightly short of the indicative housing

424,000 sq m (see para. 2.9). As set out in Chapter 5.

Sutton Town Centre Area Action Plan – Preferred Options Document

79

target160; however, there are an additional 150 units with planning permission within the town centre (and the immediately neighbouring area) that have not been included in this calculation. It is reasonable to expect further intensification in line with Council policy161 and it is likely that future pressure for housing development, after the current recession, will ensure that the target will be met. 8.42

160

The allowance for non-residential uses is more generous compared with indicative requirements, reflecting the greater uncertainty over their delivery. The potential 22,700 sq m additional Class A floorspace could match the requirement for additional comparison retail floorspace162 and also provide for other service and leisure uses, such as restaurants. The potential 51,700 sq m additional B1 floorspace exceeds the requirement for additional office space163, reflecting the need to uplift the quality of the office stock in order to attract and retain employment. B1 development may also include other uses, such as small craft workshops, or specific facilities to encourage small businesses. The objective of seeking new employment space on all suitable sites reflects uncertainty over the delivery of some of the key opportunity sites

The CPS requirement is for 2,000-2,150 additional units over the plan period, as set out under Preferred Policy Objective RC1. 161 See CPS policy BP1. 162 An indicative target of 7,800-21,500 sq m additional floorspace is suggested under Preferred Policy Objective RL1. 163 An indicative requirement of 9,000 sq m additional floorspace is suggested under Preferred Policy Objective BE2.

and a need to allow for further unforeseen losses of office floorspace elsewhere in the town centre. 8.43

Other non-residential uses include cultural and leisure facilities, hotels and community uses. It is proposed that a significant proportion of such uses will form a ‘cluster’ within the Civic Quarter. Within the Exchange Quarter, the figures reflect a tentative assumption of some leisure uses on one particular site. Within the Station Quarter, the large figure reflects an allowance for unspecified non-residential uses on the Sutton Station and Car Park site.

8.44

Within the Schedule, assumptions are made concerning the possible phasing of development on each site. On the basis of these assumptions, the amount of development that could occur within each of the three five-year periods, covered by the AAP, is set out in Table 8.2. This suggests that, whereas the phasing of residential development is relatively even throughout the plan period, other uses may come on stream later in the plan period. Generally speaking, the short term proposals are most likely to be implemented, and there is a degree of uncertainty regarding longer term developments. For housing, the figures in Table 8.2 suggest the development of between 1,100 and 1,300 dwelling units over the first ten years.

Sutton Town Centre Area Action Plan – Preferred Options Document

80

Table 8.2 Potential Phasing of Additional Town Centre Floorspace (sq m) Class A Class B1 Class C3 Other Use Total Classes Short term 5,700 3,000 57,300 3,300 69,300 Medium 11,900 31,800 50,300 28,900 122,900 term Long term 5,100 16,900 51,000 12,100 85,100 Total 22,700 51,700 158,600 44,300 277,300 8.45

In summary, the identified opportunity sites are capable of meeting foreseen development needs, helping to transform the function and appearance of the town centre in the process. However, it is important to reiterate that the figures are indicative at this stage and do not represent firm proposals. The views of landowners, developers and the public are welcomed.

8.46

Account must also be taken of future uncertainties in relation to

the availability of individual sites and the condition of the property market. It may be that not all the opportunity sites will come on stream within the plan period, while other sites may become available. There is a need for more detailed site assessments164 and further research into factors affecting the infrastructure capacity of the town centre as a whole. Important considerations will be flexibility and the ability to adapt to changing circumstances.

164

See para. 8.5, above.

Sutton Town Centre Area Action Plan – Preferred Options Document

81

This page is intentionally left blank for printing purposes.

Sutton Town Centre Area Action Plan – Preferred Options Document

82

NINE

it will help provide the policy context for dealing with planning applications. The aim is to give clear guidance without being overly prescriptive, and developers and architects will be encouraged to bring innovative approaches to site development. However, development proposals that conflict with the policies of the LDF will be refused.

Implementing the Area Action Plan

9.4

The AAP should also be seen as a promotional document, setting out the opportunities for developers and landowners. It will encourage a holistic approach to development, in which individual proposals form part of a wider vision and are, in turn, supported by other proposals. As a spatial plan, it will reflect the Council’s corporate objectives and will help guide corporate decision-making.

9.5

The proposals and guidelines of the AAP must be realistic, in property market terms, if they are to influence development effectively, e.g. by encouraging mixed-use development. While some policy objectives are relatively easily delivered through the property market and development industry, others are more difficult because they are less profitable and/or more risky. An important purpose of mixed use development is to provide for uses that might not otherwise be delivered through development.

9.6

Planning Obligations, or Section 106 agreements, constitute an important mechanism for funding town centre improvements. These are legal agreements negotiated between local

Introduction 9.1

To be effective, the policy objectives, infrastructure proposals and development proposals set out in the AAP must be capable of implementation, i.e. be realistic, viable and deliverable. Indeed, the focus of the AAP must be on implementation.

9.2

This chapter provides a brief overview of the delivery mechanisms, including the effect of the planning system on private sector development decisions and the role of the Council in promoting development projects with its land ownership and through partnerships. A key challenge for the AAP will be dealing with uncertainty, and it will be essential to monitor progress and review proposals on a regular basis.

Implementation through the Planning System 9.3

The AAP provides a visionary framework for future town centre development and change. As part of the Council’s Local Development Framework (LDF),

Sutton Town Centre Area Action Plan – Preferred Options Document

83

transport improvements165 and, in 2008, the Council agreed a new programme of Strategic Projects for 2008-2010, to be implemented across the borough and funded by pooled s106 contributions166. The Infrastructure Schedule, set out in Appendix 4 to the CPS, includes a small number of town centre schemes, including the Tramlink extension, station improvements and proposed new road links. The CPS makes specific reference167 to the AAP, which is expected to include area-wide infrastructure and environmental improvement schemes and to set out areaspecific priorities, which developers will have to have regard to, when negotiating S106 Agreements. These schemes should reflect the policy objectives and proposals of the AAP.

planning authorities and developers, or unilateral undertakings made by developers. They provide a means of ensuring that development contributes to the creation of sustainable communities by providing or funding local infrastructure improvements directly related to the development scheme, and/or additional facilities where these are necessary to enable the development to proceed or would help improve the scheme. 9.7

The Council’s approach to S106 Agreements is summarized in CPS Core Policy DP2 – Planning Obligations, which states: The Council will ensure that where necessary all new development meets on and off site infrastructure required to support the development and/or mitigate the impact of the development through the use of planning obligations. The Council has adopted a Supplementary Planning Document setting out the Council’s policies and procedures in respect of the expected nature and extent of planning obligations. The Council has also established a new Physical Renewal Team to coordinate the negotiation, management and monitoring of S106 investment.

9.8

There may be a number of different priorities competing for the S106 contributions associated with town centre developments. For example, the London Plan’s main priorities are for affordable housing and

9.9

It is clear that S106 agreements will provide only one source of funding for the town centre schemes likely to be proposed in the AAP. They would augment other sources, notably the capital budgets of public authorities.

A Pro-active Council 9.10

Research suggests that councils that are actively involved in shaping future development are more likely to be successful in achieving their objectives168.

165

CPS, Proposed Submission Document, para. 7.26. 166 Ibid, para. 7.30. 167 Ibid, para. 7.31. 168 This is one conclusion from the study Over the Edge? Town centres and the London economy, prepared by URBED for the North

Sutton Town Centre Area Action Plan – Preferred Options Document

84

Councils can seek to work in partnership with the private sector, and with other public agencies. They can provide an example to others through the successful development of Council sites. They can use capital spending to bring about town centre improvements, levering additional capital from other sources. 9.11

of how to lever in external funding to supplement the Council’s capital budget and S106 contributions. By gaining the financial support of TfL, the Council has been able to bring forward a wider range of improvements than would otherwise have been possible at the present time. 9.14

The CPS171 emphasises the importance of working closely with infrastructure providers, to identify infrastructure requirements and co-ordinate delivery, whilst protecting local amenities and environmental quality. In seeking to promote the sustainable regeneration and growth of Sutton town centre, the Council will work in partnership with developers, landowners, Energy Services Companies (ESCos), the London Energy Partnership, utilities and other agencies to progress these areas as Low Carbon Zones172.

9.15

The Council may also seek to work in partnership with landowners and developers to secure particular town centre developments, e.g. on a Council owned site or in relation to a large town centre development that requires off-site improvements and would involve a number of partners, e.g. Sutton Station redevelopment. The Council could assist, if necessary, by using its Compulsory Purchase powers.

9.16

There is also the possibility of a establishing a wider publicprivate partnership, covering a

As a landowner, the Borough Council can have a direct impact on the implementation of the AAP. The redevelopment of some Council-owned sites would contribute significantly to town centre objectives.

Working in Partnership 9.12

9.13

The Sutton Town Centre Partnership169 provides an effective vehicle for the Council to co-operate constructively with town centre businesses and other interests. The Partnership can take an active role in promoting the town centre for development and encouraging its improvement. A recent example of effective collaboration, on a specific improvement project, is the Town Centre Renewal Scheme170. This project will also incorporate improvements to the space occupied by the retail market, which the Partnership is keen to promote alongside other Town Centre Management initiatives for specialist markets in and around the town square. The Town Centre Renewal Scheme is also a good example

London Strategic Alliance and West London Alliance. 169 See para. 5.3, above. 170 As described in para. 6.15, above.

171

Core Policy DP3 – Infrastructure Requirements and Delivery. 172 CPS, para. 6.95.

Sutton Town Centre Area Action Plan – Preferred Options Document

85

number of Council-owned sites within the town centre and elsewhere. A Local Asset Backed Vehicle (LABV) would be formed in partnership with private developers for regeneration purposes. The general structure is that the public body puts a package of its property assets into the vehicle and the private sector partner raises an amount of cash that is equivalent to the value of the property assets. Its purpose would be to take forward the redevelopment of a number of Council-owned sites necessary for the implementation of key Council objectives and strategies. This approach has recently been adopted by the London Borough of Croydon.

and of the progress of permitted schemes, is needed to measure whether plan objectives and development targets are being met. Other indicators, notably the information collected in preparing a Town Centre Health Check, will also be used to measure plan effectiveness. Feedback from town centre businesses and users will be essential in assessing whether changes are necessary.

Further Research 9.19

Monitoring and Review 9.17

As well as a degree of uncertainty affecting particular opportunity sites173, the AAP must acknowledge the wider economic uncertainties, notably the impact of the current economic recession. The immediate effect of this is to slow the pace of development, with fewer housing starts and a lack of confidence in the commercial property market. While a future economic recovery is a fundamental assumption of the AAP, its timing and extent are uncertain.

9.18

In addition to having in-built flexibility, the AAP must be subject to regular monitoring and review if it is to adapt to changing circumstances. Regular monitoring of planning applications and permissions,

Throughout this Preferred Options Document, reference has been made to matters where clarification is needed before the Sutton Town Centre AAP can be finalised. In summary, the main areas where further research may be required are: • The completion of a comprehensive Town Centre Health Check174. • Considerations concerning new town centre housing (5.19). • Future requirements for social and community infrastructure (5.20). • Transport aspects of the AAP (5.29). • A ‘heritage review’ of the town centre (5.34). • The scope for decentralised energy networks and other requirements for achieving a low carbon zone (5.40, 6.3 and 6.5). • The scope for a coordinated approach to

174 173

See 8.46, above.

In collaboration with Town Centre Management.

Sutton Town Centre Area Action Plan – Preferred Options Document

86

• •

Sustainable Urban Drainage (6.7). The implementation of a public realm strategy (6.14). More detailed development site assessments (8.5).

The references are to paragraphs in this document

where the requirements are explained in more detail. It is intended that this work will be carried out as part of the next stage of AAP preparation, in the context of the consultation response to the Preferred Options Document.

Sutton Town Centre Area Action Plan – Preferred Options Document

87

This page is intentionally left blank for printing purposes.

Sutton Town Centre Area Action Plan – Preferred Options Document

88

Schedule of Development Opportunity Sites This schedule provides details on the development opportunity sites identified in Chapter 8. For each site there is a location map and the following information: Site Area. In hectares. Ownership. Private, Council or Utility Company (Public/Private) Current Use and Floor Area. Based on Sutton Town Centre Land Use and Commercial Floorspace Survey 2008. Gross external floorspace was calculated by measuring the building footprint of each unit. Upper floors were assumed to occupy the same gross floor area as ground floor units. Development Potential. Based on a planning appraisal of the site and its potential role within the town centre. Urban Design Principles. Based on the Urban Design Framework prepared by Gillespies consultants. Development Constraints. Including site constraints (e.g. liable to flood), ownership constraints (e.g. multiple ownership) and infrastructure requirements (e.g. pedestrian links, road links and future tram use). Archaeological Priority Areas. Identified in the Unitary Development Plan. Flood Zones, Source Protection Zones and major/minor aquifers have been identified by the Environment Agency. Flood risk categories are175: Flood Zone 1 – Low probability; Flood Zone 2 – Medium probability; and Flood Zone 3a – High probability. Development Capacity. Based on the development footprint and building heights proposed in Gillespies’ Urban Design Framework. Where a range of building heights is given, a rough average of all proposed buildings has been taken. The number of residential units suggested for each site is based on an average size range of 85-105 sq m gross floorspace per unit176. Possible Phasing. An estimate of when development might take place during the plan period, taking into account development constraints and landowner intentions (where known). Short term – within first five years of the plan period (up to 2015) Medium term – in the middle of the plan period (2016-2020) Long term – in the last five years of the plan period (2021-2025) 175 176

Defined in PPS25, Table D1 – Flood Zones. Based on previous planning permissions within the town centre.

Sutton Town Centre Area Action Plan – Preferred Options Document

89

N1: GAS HOLDER SITE

Site Area: 1.65 hectares Ownership: Utility company (Private) Current Use and Floor Area: Gas storage and small industrial/storage units (184 sq m). Development Potential: Residential-led mixed-use development, incorporating a new road link along the eastern boundary. Possible nonresidential uses include small-scale workshops, retail shops, restaurants and offices. Urban Design Principles: Small block sizes with heights between 3 and 6 storeys. Active frontages at ground/first floor levels. Development Constraints: Operational requirement for utility use. Within Flood Zone 1, 2 and 3a (part) and a minor aquifer. Potential land contamination. Protection of land for new road link along eastern boundary. Development Capacity: Total building footprint 4,750 sq m delivering a gross external floor area of 16,625 sq m. Potential for an estimated 110-140 residential units assuming 70% residential. Possible Phasing: Medium/Long term

Sutton Town Centre Area Action Plan – Preferred Options Document

90

N2: MAGNET SITE

Site Area: 0.45 ha Ownership: Private Current Use and Floor Area: The Magnet building is a large format kitchen showroom and warehouse (2,047 sq m), with associated car parking. Development Potential: Retail/residential-led mixed-use development, incorporating a new east-west road link. Other possible uses include small offices and restaurants. Urban Design Principles: Small block development fronting Vale Road, High Street and new road link. Heights between 3 and 6 storeys. Active frontages at ground floor level. Development Constraints: Protection of land for Tramlink along High Street frontage. Protection of land for new road link along southern boundary. Within an Archaeological Priority Area. Within Flood Zone 1, Source Protection Zone 2 and a minor aquifer. Development Capacity: Total building footprint 1,950 sq m delivering a gross external floor area of 8,816 sq m. Ground floor retail to replace existing showroom. Potential for an estimated 60-75 residential units assuming 70% residential. Possible Phasing: Short term Sutton Town Centre Area Action Plan – Preferred Options Document

91

N3: BLOCKBUSTER SITE

Site Area: 0.15 ha Ownership: Private Current Use and Floor Area: A video rental shop (606 sq m), with associated car parking to the rear (access from Vale Road). Development Potential: Mixed-use development incorporating a ground floor retail frontage to the High Street and Sutton Green (including the possibility of a café/restaurant and neighbourhood/community uses). Possible upper floor uses include residential and B1 space for small businesses. Urban Design Principles: Building fronting Vale Road of between 3 and 4 storeys. A landmark building fronting High Street and Sutton Green, possibly up to 8-storeys in height. Active frontages at ground floor level. Development Constraints: Within Flood Zone 1 and a minor aquifer. Development Capacity: Total building footprint of 719 sq m delivering a gross external floor area of 3,595 sq m (assuming a tall building fronting the green). Potential for an estimated 25-30 residential units assuming 70% residential. Possible Phasing: Short term.

Sutton Town Centre Area Action Plan – Preferred Options Document

92

N4: BURGER KING SITE

Site Area: 0.19 ha Ownership: Private Current Use and Floor Area: ‘Drive-thru’ single storey takeaway (388 sq m) and associated surface parking. Development Potential: Residential/office-led mixed-use development with retail/leisure at ground floor. Urban Design Principles: Active ground floor uses and a frontage with minimal setbacks. Building heights between 4 and 5 storeys. Development Constraints: Protection of land for Tramlink along High Street frontage, with the option of providing for a tram stop. Within an Archaeological Priority Area. Within Flood Zone 1, Source Protection Zone 2 and a minor aquifer. Development Capacity: Total building footprint of 714 sq m delivering a gross external floor area of 3,213 sq m. Potential for an estimated 20-25 residential units assuming 70% residential. Possible Phasing: Short term

Sutton Town Centre Area Action Plan – Preferred Options Document

93

Central Sutton – Exchange Quarter C1: NORTH OF LODGE PLACE

Site Area: 0.22 ha Ownership: Private Current Use and Floor Area: The single storey Windsor House is in office use (506 sq m) and the 2-storey Old Courthouse building houses a surgery (1,482 sq m). Development Potential: Retail-led mixed-use development with larger format ground/first floor retail units and potentially an improved health clinic. Small scale office and residential units above. Urban Design Principles: Buildings between 3 and 6 storeys. Larger format units ‘sleeved’ by smaller units providing active street frontage. Pedestrian friendly public space adjacent to the site along Throwley Way. Creation of new shared public space along Lodge Place. Development Constraints: Within Flood Zone 1 and a minor aquifer. Development Capacity: Total building footprint of 1,871 sq m delivering a gross external floor area of 8,420 sq m. Potential for an estimated 40-55 residential units assuming 50% residential. Possible Phasing: Medium term

Sutton Town Centre Area Action Plan – Preferred Options Document

94

C2: SOUTH OF LODGE PLACE

Site Area: 0.4 ha Ownership: Private Current Use and Floor Area: Two warehouse style retail units to the rear of the site with four retail units fronting High Street (2,676 sq m). Development Potential: Comprehensive redevelopment of the site to create large ground/first floor retail units with residential and office above. Urban Design Principles: Buildings between 3 and 6 storeys. Any new buildings fronting High Street to be in keeping with existing human-scale. Larger format units ‘sleeved’ by smaller units providing active street frontage. Creation of new shared public space along Lodge Place. Development Constraints: Shared use and mixed freehold ownership of service yard at corner with Throwley Way. Development Capacity: Total building footprint of 3,065 sq m delivering a gross external floor area of 15,325 sq m. Potential for an estimated 75-90 residential units assuming 50% residential. Possible Phasing: Short term

Sutton Town Centre Area Action Plan – Preferred Options Document

95

C3: KWIKFIT SITE

Site Area: 0.07 Ownership: Council Current Use and Floor Area: Car repair business housed in a single storey building (291 sq m) with forecourt. Development Potential: Comprehensive redevelopment of the site for high density residential-led mixed-use development, hotel or other town centre use. Active frontage to Throwley Way. Possible link with development of Site C4 (Times Square MSCP). Urban Design Principles: Buildings between 3 and 5 storeys, stepping down near residential properties to the east. Active street frontages. Development Constraints: Possible link to redevelopment of MSCP. Within Flood Zone 1 and a minor aquifer. Development Capacity: Total building footprint of 496 sq m delivering a gross external floor area of 1,984 sq m. Potential for an estimated 10-15 residential units assuming 70% residential. Possible Phasing: Short term

Sutton Town Centre Area Action Plan – Preferred Options Document

96

C4: TIMES SQUARE MSCP

Site Area: 0.45 ha Ownership: Council Current Use and Floor Area: 4-storey car parking building (16,732 sq m). Development Potential: Replacement car parking provision with office-led mixed-use wrapped around. Urban Design Principles: New car park wrapped by single aspect buildings to contribute positively to the street. Building heights of between 4 and 6 storeys. Development Constraints: Car park in operational use. Site is within Flood Zone 1, Source Protection Zone 1 and a minor aquifer. Protection of land for new road link from Throwley Way through to Lenham Road. Need to protect residential amenity in Lenham Road. Development Capacity: Total building footprint of 5,665 sq m (footprint of car park 3,399 sq m, footprint of other uses 2,266 sq m). Delivering a gross external floor area of 28,275 sq m (car park floor area of 16,995 sq m, other uses floor area of 11,280 sq m). No residential accommodation is proposed on this site. Possible Phasing: Medium term

Sutton Town Centre Area Action Plan – Preferred Options Document

97

C5: HOUSES ADJOINING MANOR PARK

Site Area: 0.52 ha Ownership: Council and Private Current Use and Floor Area: A mix of private residential properties and Council owned sheltered and supported housing (2,898 sq m). Development Potential: Residential-led mixed-use development with higher density flats incorporating supported housing provision and enabling the reconfiguration and improvement of Manor Park. Urban Design Principles: Buildings of 3 to 4 storeys with a key/landmark building on the corner of Throwley Way and Greyhound Road potentially over 10-storeys. Active frontage to Manor Park, Throwley Way and Greyhound Road. Development Constraints: Within Source Protection Zone 1 and a minor aquifer. Development Capacity: Total Building footprint of around 1,900 sq m delivering a gross external floor area of 7,600 sq m. Potential for an estimated 50-65 residential units (assuming 70% residential), giving a net increase of 20-35 units. Possible Phasing: Medium term

Sutton Town Centre Area Action Plan – Preferred Options Document

98

C6: NORTH OF GREENFORD ROAD

Site Area: 0.07 Ownership: Private Current Use and Floor Area: Private residential accommodation (128 sq m), converted offices (128 sq m), vacant yard and associated workshop (220 sq m). Development Potential: Residential-led mixed-use development with retail at ground floor. Streetscape and public realm improvements. Urban Design Principles: Buildings between 3 and 6 storeys and active frontages to and enclosure of Greenford Road and St Nicholas Way. Development Constraints: Within Source Protection Zone 1 and a minor aquifer. Development Capacity: Total building footprint of 450 sq m delivering a gross external floor area of 2,250 sq m. Potential for an estimated 15-20 residential units assuming 70% residential. Possible Phasing: Medium term

Sutton Town Centre Area Action Plan – Preferred Options Document

99

C7: ROBIN HOOD JUNIOR SCHOOL

Site Area: 0.68 ha Ownership: Council Current Use and Floor Area: School buildings (2,021 sq m) and play area. Development Potential: Comprehensive redevelopment involving a mixture of town centre uses. In particular, the site is suitable for sports and leisure, community uses, B1 offices and retail. Residential-led mixed-use may be appropriate closer to existing residential properties. Urban Design Principles: Building heights of between 4 and 6 storeys adjacent to the existing MSCP and along St Nicholas Way. Buildings stepped down to 3 storeys where adjacent to existing residential properties. Active frontage to St Nicholas Way. Development Constraints: In operational use, a suitable site is needed for a replacement school. Within Flood Zone 1 and 2, Source Protection Zone 1 and a minor aquifer. Development Capacity: Total building footprint of 4,500 sq m, delivering a gross external floor area of 22,500 sq m. Potential for an estimated 65-80 residential units assuming 30% residential. Possible Phasing: Long term

Sutton Town Centre Area Action Plan – Preferred Options Document

100

Central West Sutton – Civic Quarter CW1: CIVIC CENTRE SITE

Site Area: 0.9 ha Ownership: Council Current Use and Floor Area: A range of civic uses including Council Offices, Sutton Library, SCOLA, Age Concern (and charity shop), and Sutton Children’s Centre (8,187 sq m). A surface car parking is located in the west. Development Potential: Civic/Cultural/Community-led mixed-use redevelopment of entire site. New landmark Civic Building, new theatre, dance studio, and community space/church hall. Leisure uses (cafes, bars and restaurants) at ground floor adjacent to newly created Civic Square. Possible information centre and café/restaurant in a pavilion within square. Urban Design Principles: Series of individual building blocks with heights of up to 6-storeys around the square and a landmark building of up to 10-storeys to the rear of the site (on the existing car park). Active frontages, particularly to the Civic Square. Enhanced pedestrian connections and environment from High Street through to Civic Square. Development Constraints: In operational use. Within Flood Zone 1, 2 and 3a and a major aquifer. Development Capacity: Total building footprint of 4,912 sq m delivering a gross external floor area of 29,472 sq m. Potential for an estimated 30-35 residential units assuming 10% residential. Possible Phasing: Medium term Sutton Town Centre Area Action Plan – Preferred Options Document

101

CW2: SECOMBE THEATRE SITE

Site Area: 0.28 ha Ownership: Council Current Use and Floor Area: Theatre in converted church building (2,216 sq m). Brick façade with later additions to the rear. Development Potential: Residential-led mixed-use development. Urban Design Principles: Building heights of between 4 and 6 storeys with active frontages along Cheam Road and Gibson Road. This would be a key building at a gateway into town centre. Higher buildings would complement the scale of the adjacent Gibson Road MSCP. Development Constraints: In operational use. Lies within Flood Zone 1, 2 and 3a, Source Protection Zone 1 and a major aquifer. Development Capacity: Total building footprint of 898 sq m delivering a gross external floor area of 4,490 sq m. Potential for an estimated 30-40 residential units assuming 70% residential. Possible Phasing: Long term

Sutton Town Centre Area Action Plan – Preferred Options Document

102

CW3: BEECH TREE PLACE / WEST STREET

Site Area: 0.37 sq m Ownership: Council and Private Current Use and Floor Area: Sheltered and supported housing, with residential and community uses on West Street. Total 1,882 sq m. Development Potential: Comprehensive redevelopment to incorporate a mix of social, community, cultural and residential uses. There may also be potential for small business units. Urban Design Principles: Building heights of 6-storeys, to provide an adequate sense of enclosure along St Nicholas Way, stepping down to 3/4storeys along West Street, to complement the existing houses, and towards St Nicholas churchyard to respect the setting of the church. Active frontages along the roads and around the churchyard. Development Constraints: Need to relocate existing supported housing and community uses, potentially within the new development. Within Flood Zone 1 and a major aquifer. Development Capacity: Total building footprint of 2,302 sq m delivering a gross external floor area of 11,510 sq m. Potential for an estimated 30-40 residential units assuming 30% residential. Possible Phasing: Medium term Sutton Town Centre Area Action Plan – Preferred Options Document

103

South Sutton – Station Quarter S1: NORTH OF GROVE ROAD

Site Area: 0.48 ha Ownership: Private Current Use and Floor Area: Low rise shops and former houses in a variety of ownerships; the Grove Road frontage of Morrisons (including car park entrance) (Total 3,400 sq m). Development Potential: New secondary retail units to provide an active frontage to Grove Road with office and/or residential above. Urban Design Principles: Building heights between 4 and 6 storeys to provide adequate frontage and enclosure to Grove Road. New development at the junction of Sutton Park Road and Grove Road with buildings between 7 and 10 storeys which will act as a landmark and gateway to the town centre. Active frontages along the length of the redevelopment. Development Constraints: Multiplicity of ownership. Within Flood Zone 1, 2 and 3a, Source Protection Zone 1, and lies within a major aquifer. Development Capacity: Total building footprint of 4,032 sq m delivering a gross external floor area of 22,116 sq m. Potential for an estimated 105-130 residential units assuming 50% residential. Possible Phasing: Medium term Sutton Town Centre Area Action Plan – Preferred Options Document

104

S2: NORTH OF SUTTON COURT ROAD

Site Area: 0.30 ha Ownership: Private (3 sites) Current Use and Floor Area: Older, underused office blocks and a vacant site. Existing office building floor area of 3,205 sq m (Watermead House and Bank House). Development Potential: Office-led mixed-use development. Retention of the existing 9-storey office building. Urban Design Principles: New buildings of between 7 and 10-storeys, possibly over 11-storeys to complement the proposed cluster of taller buildings around the station. Active shopping frontage at ground floor level along Sutton Court Road. Development Constraints: Within Flood Zone 1, Source Protection Zone 1 and a minor aquifer. Development Capacity: Total new building footprint of 1,056 sq m delivering a gross external floor area of 8,448 sq m. Potential for an estimated 25-30 residential units assuming 30% residential. Possible Phasing: Short term

Sutton Town Centre Area Action Plan – Preferred Options Document

105

S3: SOUTH OF SUTTON COURT ROAD

Site Area: 0.85 ha Ownership: Private Current Use and Floor Area: 16-storey empty office block with a floor area of 9,010 sq m (South Point); site of two demolished 4-storey office blocks either side; site of subdivided/demolished houses in the east. Development Potential: Mixed-use office and residential development with the potential to incorporate tall buildings. Secondary retail and leisure uses should be provided at ground level. Planning permission has been given for the redevelopment of the western portion of the site. Urban Design Principles: Potential for pedestrian links from tram/bus interchange on Sutton Court Road through to the railway station. New buildings stepped down to the east, from around 11-storeys to between 4 and 6-storeys. Development Constraints: Within Flood Zone 1 and 2, Source Protection Zone 1 and a minor aquifer. Protection of land for pedestrian linkages. Development Capacity: Office use of refurbished South Point (floor space of 9,010 sq m). Planning permission for two new buildings incorporating ground level A3 units with 256 flats above (23,902 sq m combined gross external floor area). New building footprint of 562 sq m on the eastern part, delivering a potential gross external floor area of 4,500 sq m and an estimated 20-25 residential units assuming 50% residential. Possible Phasing: Short term

Sutton Town Centre Area Action Plan – Preferred Options Document

106

S4: SUTTON STATION AND CAR PARK

Site Area: 1.3 ha Ownership: Utility company (Public - Network Rail) Current Use and Floor Area: Train station and surface car park. Development Potential: Redevelopment of entire railway station site for a variety of uses, including offices, leisure, shops and other town centre uses, with a new station square. Redevelopment of the car park, including a multistorey car park (if needed to replace Brighton Road) wrapped by residential and office-led mixed-use. A new train station should have pedestrian links to the tram stop on Sutton Court Road and to Quadrant House. Urban Design Principles: Potential for a new landmark building of 20-25 storeys in height, located over the railway station, and fronting the new square. On the car park site, a podium building at street level of 4 to 6 storeys, and upper levels stepped back and rising to between 8 and 16 storeys. Active frontages and enhanced pedestrian environment (with new connections) around the station square. Development Constraints: Station is in operational use. Within Flood Zone 1, Source Protection Zone 1 and a minor aquifer. Operational use as track maintenance depot between the car park and the railway line. Development Capacity: Total building footprint of 5,753 sq m delivering a gross external floor area of 86,228 sq m. Potential for an estimated 410-510 residential units assuming 50% residential. Possible Phasing: Medium/Long term Sutton Town Centre Area Action Plan – Preferred Options Document

107

S5: SHOPS OPPOSITE STATION

Site Area: 0.18 ha Ownership: Private Current Use and Floor Area: Parade of shops with some office units above (1,110 sq m). Development Potential: Redevelopment with retail uses at ground floor and residential/offices above. Potential for a new hotel. Related to new road link from the front of the railway station to Grove Road. Urban Design Principles: Building heights of up to 10-storeys, stepping down to between 4 and 6-storeys along Mulgrave Road. Development Constraints: Protection of land for a new road link from the station to Grove Road. Multiple ownership Development Capacity: Total building footprint of 2,165 sq m delivering a gross external floor area of 12,990 sq m. Potential for an estimated 35-45 residential units assuming 30% residential. Possible Phasing: Long term

Sutton Town Centre Area Action Plan – Preferred Options Document

108

S6: SUTHERLAND HOUSE

Site Area: 0.26 ha Ownership: Private Current Use and Floor Area: Vacant Offices (7,119 sq m) Development Potential: A recent planning appeal decision accepted, in principle, the conversion and upward extension of the existing building. The proposal is for a residential-led mixed-use conversion with offices, hotel and ground floor retail and leisure uses. Urban Design Principles: Active frontage to Brighton Road together with public realm enhancements consistent with this ‘gateway’ location. Development Constraints: Within Flood Zone 1, 2 and 3a, Source Protection Zone 1 and a major aquifer. Development Capacity: Total building footprint of 2,088 sq m, part 22-storey building, delivering a gross external floor area of 15,452 sq m. Incorporating 96 residential units. These figures are based on a planning application (B2007/57947) for redevelopment and extension of the existing office building which was accepted by the Planning Inspector on design grounds, but dismissed due to insufficient Section 106 contributions. Possible Phasing: Short term

Sutton Town Centre Area Action Plan – Preferred Options Document

109

S7: BRIGHTON ROAD MSCP

Site Area: 0.55 ha Ownership: Council Current Use and Floor Area: Car park (11,892 sq m) Development Potential: Residential and office-led mixed-use in a distinctive landmark building. Possible site for hotel or leisure centre. Urban Design Principles: Strong and continuous active frontage to Brighton Road and potential new access road. A mix of building heights mainly between 4 and 6 storeys. Development Constraints: Need to provide alternative public car park. Within Flood Zone 1, 2 and 3a, Source Protection Zone 1 and a minor aquifer. Development Capacity: Total building footprint of around 2,800 sq m delivering a gross external floor area of around 14,000 sq m. Potential for an estimated 95-115 residential units assuming 70% residential Possible Phasing: Long term

Sutton Town Centre Area Action Plan – Preferred Options Document

110

STRATEGIC PLANNING

Hindi Hindi

Chinese Chinese

Urdu Urdu Large Print

Braille

Audiotape

Many of Sutton’s publications can be downloaded directly from our website: www.sutton.gov.uk Click on the ‘accessibility’ button to visit our website designed for those with a visual impairment.

Telephone No ...............................................................

Gujerati Gujerati

......................................................................................

Bengali Bengali

......................................................................................

Arabic Arabic

Address ........................................................................

Albanian Albanian

Name ............................................................................

If you or someone you know needs a translation of any part of this document, or you need any of the information in large print, braille or on audiotape, please tick the box or boxes required, complete the form and detach. Phone 020 8770 5000 for more information.

Please write your name, address and telephone number if you have one,and return this form to: London Borough of Sutton Civic Offices, St Nicholas Way SUTTON SM1 1EA

SUTTON TOWN CENTRE PLAN Preferred Options

DPD3 Sutton Town Centre colour report cover A3.qxd

07/04/2009

09:49

Page 1

London Borough of Sutton Local Development Framework

3

DPD

Development Plan Document

Sutton Town Centre Area Action Plan Preferred Options Consultation Draft

DARREN RICHARDS EXECUTIVE HEAD Planning and Transportation Jeff Wilson Head of Strategic Planning London Borough of Sutton Environment and Leisure 24 Denmark Road Carshalton SM5 2JG Printed on recycled paper - this paper can be recycled

April 2009