Agenda item

[To be introduced by the Cabinet Member for Housing and Regeneration. Report of the Tottenham Director.] Cabinet to consider details of the Council's approach to delivering a district centre at Tottenham Hale.

The Cabinet Member for Housing and Regeneration introduced the report which set out a number of proposals in relation to the regeneration of Tottenham Hale. Cabinet noted that the District Centre Framework (DCF) was a masterplan demonstrating how the Council would fulfil its ambitions to deliver 5000 new homes and 4000 new jobs. The District Centre Framework also showed how Tottenham Hale would be transformed into a town centre with a range of new commercial, retail, leisure and entertainment uses.

 

The Cabinet Member advised that a whole range of consultations, both formally and through informal workshops had been undertaken with local residents to ensure that the reports presented to Cabinet reflected the views of the local community. The Cabinet Member further advised that the aim was to deliver a holistic programme of regeneration to the area and to that effect, there were a number of sub-strategies that sat under the District Centre Framework; such as a Meanwhile Plan, a Green Spaces Strategy and a Test Project approach to ensure that innovative projects and new initiatives were brought to the area.

 

The Cabinet Member thanked officers for their continuing hard work to bring this significant report forward following work with residents over the last two years. 

 

In response to Cllr Engert’s question as to why it was proposed to delegate authority to approve the final versions of a number of key documents to officers, and not the Cabinet Member, it was noted the decisions would be taken with the Cabinet Member’s knowledge and information. A pragmatic approach was being taken to delegate final amendments to officers following Cabinet approval. 

 

In response to Cllr Engert’s question a how the local communities concerns about issues such as a lack of GP’s and community infrastructure would be addressed as developments came forward, the report set out that the District Centre Framework was clearly linked to the Area Action Plan and the key principles of the DCF were embedded within the Area Action Plan for the area. These principles were backed up with hard Planning policy.

 

RESOLVED

 

1.    To adopt the Tottenham Hale District Centre Framework as the council’s delivery framework for Tottenham Hale for the reasons set out in paragraphs 4.3 – 4.9 of the report, and which can also be found in full in appendix 3 of the report.

 

2.    To note the draft delivery strategies listed below and grant delegated authority to the Tottenham Programme Director, in consultation with the Assistant Director for Environmental Services and Community Safety and Assistant Director of Planning, to approve the final version as the council’s delivery strategy for Streets and Spaces and Green and Open Spaces:

              i.        Tottenham Hale Streets and Spaces Strategy for the reasons set out in paragraphs 4.10-4.15 of the report and which can also be found in full in appendix 5 hereto.

             ii.        Tottenham Hale Green and Open Spaces Strategy for the reasons set out in paragraphs 4.16 and 4.19 of the report and which can be found in full in appendix 4 hereto

 

3.    To note the following capital projects which already have Housing Zone funding in place to be taken forward in consultation with internal and external stakeholders (set out in Table 1) and agree that these projects should be added to the capital programme:

              i.        GL2 Hale Village Bridge/ Central Bridge

             ii.        GL1 - Hale Wharf Bridge and PB1 Pymmes Brook Bridge

            iii.        PR3 - Ferry Lane/ Forest Road

 

4.    To note the following capital projects which already have funding from other sources in place to be taken forward in consultation with internal and external stakeholders (set out in Table 2) and agree that these projects should be added to the capital programme:

              i.        Chesnut Road (Phase 1)

             ii.        Broad Lane Pocket Parks

 

5.    To note the intention to continue to develop proposals, including a masterplan and/or a business case for capital investment, for the following projects in consultation with internal and external stakeholders (set out in Table 3):

              i.        The Paddock

             ii.        Down Lane Park

            iii.        Park View Road Underpass

 

6.    To note the Test Project approach set out in paragraphs 4.28 – 4.33 of the report and appendix 6 of the report.

 

Reasons for decision

 

The adoption of the Tottenham Hale District Centre Framework (DCF), Streets and Spaces Strategy and Green and Open Spaces Strategy, the Test Project approach, along with the endorsement of the first tranche of projects to be delivered by Cabinet will be a significant milestone in the regeneration of Tottenham Hale. These decisions will signal the end of the strategy development stage and the start of the delivery stage.

 

The reasons for adopting the DCF and supporting strategies:

 

District Centre Framework (DCF)

 

The London Plan and Haringey’s Local Plan set out ambitious targets for home and job growth in Tottenham Hale. The AAP proposes designating Tottenham Hale as a District Centre. The DCF is a delivery framework for Tottenham Hale and shows how the outputs in the AAP can be translated on the ground and the heart of Tottenham Hale could begin to take shape. At its heart, this includes consideration of the elements that make up a sustainable place, including the social, community, economic and physical infrastructure needed to support the level of growth envisaged.

 

The process of preparing the DCF has been important in that it has been used to test key principles in the AAP – in terms of place making (the ingredients that make up a successful place), urban capacity and viability. The DCF shows what the district centre could look like by describing the structure of Tottenham Hale (its streets and spaces), the form and function of its buildings, the nature of green and open spaces and the location of key community infrastructure.

 

The strategy is to transform the heart of Tottenham Hale, currently an area dominated by surface car parking and out of town retailing, into a safe, open and attractive series of streets and spaces for people, flanked by shops, cafes and community facilities. The DCF is based on the following five themes:

 

1.    A Revitalised Heart: A place with a range of shops and leisure options where people enjoy spending time.

2.    An Affordable 21st Century Neighbourhood Of Choice: A mix of affordable and market homes to rent and buy. The social and community infrastructure to support a growing community.

3.    A Well Connected Centre: Well-connected and accessible spaces, promoting walking and cycling.

4.    A Network Of Green And Open Spaces:  High quality, green and open spaces, which are well managed/maintained, clean and safe.

5.    A Working Centre: A good place to start up and grow businesses and create jobs. A mix of job types at varying skill levels.

Through the AAP policy AAP3 and in line with the commitments provided through the Housing Zone the council has committed to a ‘portfolio based approach to sites’, The implications of this policy approach is explored in the DCF document having regard to potential site development scenarios within the Local Plan documents (and based upon current circumstances). The council will work collaboratively with landowners through the planning system to coordinate the provision of housing tenure and types. This means that each site will be considered in terms of its specific characteristics and suitability for different housing types and tenures and balanced against proposals for other sites in Tottenham Hale, with the council playing a key role in managing the distribution across the area. For example, some sites may be more appropriate for family or smaller units, while others may suit particular tenure types.

 

In parallel with the preparation of the AAP, the Council is also preparing a Development Management DPD. Two policies are proposed which are of particular relevance. The first policy (DM55) concerns regeneration and masterplanning and requires applicants to demonstrate that proposals will neither prejudice future development nor frustrate delivery of the site allocations or wider area outcomes. The second Policy (DM56) is related as it supports land assembly to achieve comprehensive and co-ordinated development. The Policy confirms that the Council will use compulsory purchase powers where necessary, and where certain requirements are met.

 

The DCF has been prepared specifically to provide clarity and a framework for the implementation of the sites identified in the AAP, ensuring coordinated delivery of the strategic outcomes sought for the area. The DCF also sets out high level time scales for the delivery of key identified sites. The DCF forms part of the evidence base for the AAP, helping to demonstrate deliverability and providing more detail on implementation.

 

Preparation of the DCF has been informed by an extensive and bespoke programme of stakeholder consultation and community engagement (Appendix 1). This process has placed great emphasis on engaging with key landowners and the wider community to ensure all are aware of the vision for change in the Tottenham Hale area and the opportunities open to local people and businesses to become involved with and benefit from the investment being earmarked for the area.

 

Adopting the DCF as the council’s delivery framework would support the polices in the existing and emerging Local Plan, including the “Haringey Development Charter” (Policy DM1) and express the Council’s clear commitment to the community and developers about the quality of development that the council would like to see in Tottenham Hale. The DCF can then be used by the council to help steer design and investment decisions in a direction that allows a good quality of design and the delivery of a built environment which celebrates Tottenham Hale’s unique assets. This is the reason for the recommendation in section 3.1.

 

Streets and Spaces Strategy

 

A key challenge in delivering a successful new district centre in a dense urban environment will be to ensure that the streets and spaces successfully connect Tottenham Hale’s neighbourhoods to each other and provide attractive, safe routes across the area. It is of critical importance that these spaces are well designed with a character reflecting what is distinctive and of value in Tottenham Hale today and built with good quality materials. 

 

The Streets and Spaces Strategy describes a vision and sets a quality benchmark for the public realm including pedestrian streets, roads, cycle network and public spaces in the district centre. It will be used to guide council led highway improvements in Tottenham Hale and also public realm around new developments delivered by developers.

 

A key part of the Streets and Spaces Strategy is the Ashley Road North-South link, a new part pedestrianised street linking Ashley Road and the retail park. The street will connect a number of different development sites under different land ownership. In order to ensure that the street has the same character and uses the same materials throughout we propose to develop a design guide with partners.

 

Preparation of the Streets and Spaces Strategy is being informed by an ongoing programme of stakeholder consultation and community engagement (sections 6.9 – 6.14). The next steps are to develop the capital funding strategy for the projects which have been identified and work with Environmental Services and Community Safety to develop a sustainable solution to management and maintenance of the new and improved streets and spaces (sections 6.18 – 6.20).

 

This report is recommending that Cabinet note the communication drafts of the Streets and Spaces Strategy and give delegated authority to the Tottenham Programme Director, in consultation with the Assistant Director of Environmental Services and Community Safety and Assistant Director of Planning to approve the final version of this strategy.

 

Green and Open Spaces Strategy

 

Another key element to the success of the district centre is the access to and quality of the green and open spaces. In the context of significant new development, it is clear that our existing open spaces will need investment. In some cases this is building on significant existing momentum. In others, this is about building the case for investment. The Lea Valley is currently difficult to access from most of Tottenham Hale.

 

The Green and Open Spaces Strategy sets out a vision for a network of high quality green spaces across Tottenham Hale and a series of new and improved links across the railway line and various watercourses making it easier to access the Lea Valley. The Strategy identifies how the All London Green Grid / Haringey’s Green Grid will be realised in Tottenham Hale.

 

Well planned, designed and managed green infrastructure can lead to a more successful and productive community that is environmentally, socially and economically sustainable. Investing in Tottenham Hales green infrastructure will help ensure that everyone’s quality of life improves in the area as the transformation takes place. The DCF and delivery strategies will help the council to meet its priorities in the Haringey’s Health and Wellbeing Strategy 2015-2018 including (1) reducing obesity (2) increasing healthy life expectancy and (3) improving mental health and wellbeing.

 

Preparation of the Green and Open Spaces Strategy is being informed by an ongoing programme of stakeholder consultation and community engagement (sections 6.9 – 6.14). The next steps for this strategy are to develop the capital funding strategy for the projects which have been identified and work with Environmental Services and Community Safety and Assistant Director of Planning to develop a sustainable solution to management and maintenance of the new and improved green and open spaces (sections 6.18 – 6.20).

 

This report is recommending that Cabinet give delegated authority to the Tottenham Programme Director, in consultation with the Assistant Director of Environmental Services and Community Safety to approve the final version of this strategy.

 

Capital projects to be delivered in a first phase

 

In July 2014 Cabinet agreed to the submission of the Tottenham Housing Zone bid and gave delegated authority for officers to enter into Housing Zone grant agreements with the GLA.  Tottenham Hale was designated a Housing Zone by the Mayor of London in February 2015. In August 2015 officers (under the above delegated authority) agreed to the Council entering into an Overarching Borough Agreement with the GLA for a series of investments totalling approximately £44m to help deliver homes and jobs, improve the local environment and links to the Lea Valley Park.

 

Through development of the Green and Open Spaces Strategy and Streets and Spaces Strategy we have identified a long list of projects to be delivered over a ten year horizon to support the significant homes and job growth anticipated in the area.

 

Of this long list of projects the council initially will be taking forward a shortlist of nine projects. These projects, summarised in Tables 1, 2 and 3, have been selected because:

 

1.           The projects have capital funding already in place through the Housing Zone and these projects are already included in the Overarching Borough Agreement for the Housing Zone

2.           The projects have capital funding already in place through other funding sources and they help to meet the aspirations set out in the DCF and supporting strategies

3.           The projects have been identified as being a priority for stakeholders and the council is recommending that further design work and a delivery strategy is progressed.

 

Each project is at a slightly different stage and next steps will depend on the size of the project, the partners involved and how the project is funded. All of the projects will need to go through the appropriate approval processes before progressing to delivery stage. It may be that some of these projects do not proceed to delivery stage if they do not successfully pass each relevant project gateway.

 

Capital projects with funding secured through the Housing Zone

 

Project	Brief description of project	Target Completion Date
Central Bridge	New pedestrian footbridge over railway line linking to Hale Village Preferred delivery route through Network Rail	2018/19
Hale Wharf Bridge	New pedestrian footbridge over canal to Hale Wharf Preferred delivery route through private sector	2017/18
Pymmes Brook Bridge 1	New pedestrian footbridge over Pymmes Brook linking to canal tow path Probable delivery by LB Haringey	2016/17
Ferry Lane/ Forest Road	Capital investment to Ferry Lane to improve cycleway and amenity for pedestrians Preferred delivery route partnership between LB Haringey and LB Waltham Forest	2016/17

Table 1: Capital projects with funding secured through the Housing Zone

 

The Tottenham Programme Delivery Board oversees and drives forward the delivery of the Tottenham Regeneration Programme at an operational level with LBH, GLA, TfL and the Met Police. This Programme Delivery Board will decide whether Housing Zone funded projects should be progressed to delivery stage.  All Haringey capital projects will also be approved by the Haringey Capital Board to maintain a strategic overview of delivery and financial forecasting/spend.

 

Other capital projects with funding secured through other sources

       

Project	Brief description of project	Target Completion Date
Chesnut Road (Phase 1)	Public realm improvements including landscaping and new play areas Funding: S106, LB Haringey	2016/17
Broad Lane Pocket Parks	Enhancements to two pocket parks on Broad Lane Funding: Transport for London / GLA	2016/17

Table 2: Capital projects with funding secured through other sources

 

Funding has already been secured for these two projects and it is proposed that they proceed to delivery in 2016/17. Both projects will undergo a period of community and stakeholder engagement to agree the scope and develop the design and to confirm the delivery route.

 

Other projects to be progressed in phase 1

 

Project	Brief description of project	Target Completion Date
The Paddock	Capital investment in Paddock and agreement of a sustainable management strategy. Dependent on business case and securing of necessary funding.	2018/19
Down Lane Park	Capital investment in park including improved facilities and more planting	Delivery in phases
Park View Road Underpass	Public realm improvements including lighting and signage	2016/17

Table 3: Other projects to be progressed in phase 1

 

These projects are an important part of the Green and Open Spaces Strategy and have been identified as a priority by stakeholders. Officers will undertake further work to develop the business case for each of the above projects. Progress will be subject to satisfactory business case and funding being in place and securing the necessary approvals.

 

Reasons for supporting the Test Project approach

 

The approach: The Test Project approach is based on the principle of testing community and/or business ideas for new projects. It can be thought of as planting a seed from which larger projects may grow, but acknowledging up front that some may feel or may be heavily changed through the testing phase. It is similar to the beta phase in the testing of web or IT projects. It is an evolution of, and includes, the use of Meanwhile activities, which are now a common-place part of most regeneration projects and further afield.

 

The Council has noted the experience of Meanwhile projects elsewhere in London and recognises their potential in making the most of assets that are in transition, whether that’s spaces or buildings. However, in looking at the characteristics of Tottenham Hale and in mapping the neighbourhood’s civic networks, the Council is proposing a broader version of Meanwhile which is not just about temporary spaces, but which helps to support temporary/beta projects which have the potential to grow into larger and sustainable projects. The full approach is set out in the Test Project report.

 

Consultation: The Test Project report has identified a number of small scale projects that could be set up in Tottenham Hale in the next few years. Some are based on ideas that have worked elsewhere, amended to take into account Tottenham’s local characteristics, while others have come from dialogue with the local community. Ideas range from a ‘Made in Tottenham’ brand which would help link up local manufacturers/producers and retailers (both near and far), to ideas to establish a Village Green in the Lea Valley.

 

How it would work: The Test Project approach will work with local stakeholders to test ideas for projects which build on Tottenham Hale’s strengths. A test project will need to bring together partners with a common purpose. The projects may have social, economic, environmental or cultural objectives. We will work to help partners to secure funding and/or resources (e.g. in a temporary space if it’s a physical project) in order to test the idea for a limited time. If the project has demonstrated it is successful and sustainable, we will work with partners to take it to the next level where it can operate independently.

 

Current core funding is limited to an allocation of £50,000 per annum within the agreed Tottenham Regeneration Programme budget.

 

We are asking Cabinet to note the Test Project approach as a commitment to support community and business led activities to ensure that the existing communities in Tottenham Hale are supported throughout this period of significant transition and change.

 

Alternative options considered

 

The Council has long been committed to the regeneration of Tottenham Hale and it has for some time been earmarked as a Growth Area (Haringey Local Plan: Strategic Policies, Tottenham Hale Urban Centre Masterplan SPD, Strategic Regeneration Framework, and Physical Development Framework). These plans include the development of a new mixed-use urban centre, or district centre.

 

In deciding whether or not to commission a District Centre Framework the following other options were considered:

 

1. Do nothing: allow sites to come forward  for development  that accord with the policies of the AAP, and allowing for infrastructure to be delivered in parts by different sites as they come forward
2. District Centre Framework: To develop a non statutory masterplan backed up by a suite of delivery strategies, in dialogue with delivery partners, which can be used to guide development but which is not adopted planning policy
3. Supplementary Planning Document: Developing a comprehensive Council-led masterplan setting out in policy the principles for development in Tottenham Hale

 

The first option was discounted because if the Council relied solely on the AAP there would be a risk that the planning polices alone would not capture the proactive programme of investment promoted by the Council which sits outside planning policy documents such as the AAP. Lack of delivery clarity over what the council expects in relation to the design of the streets and spaces in between the buildings and the level of investment in the green and open spaces and infrastructure would make it difficult for the council to secure the quality and level of aspiration set out in the SRF.

 

The third option was discounted it was felt that it the planning policy position for Tottenham Hale would be sufficiently set out in Tottenham AAP and it was not necessary to produce a further policy document. The benefits of the District Centre Framework were that it could be a delivery orientated document, an adaptable and flexible framework which could respond quickly to changes areas the regeneration programme moved forward, rather than a static, inflexible document.