The Brighton Station site offers one of the most exciting and challenging development opportunities in the South East of England. This site is of both strategic and local importance. Brighton and Hove is one of the major cities in the south, however it suffers from a number of economic and social deficiencies. The site’s potential to contribute towards improving the city’s economic performance and social wellbeing would benefit both local communities and the region as a whole.

The strategic importance of the site is reinforced by its location close to the railway station, the city centre and its role as a major gateway to the city. It is also the largest undeveloped brown-field site in Brighton. The development offers the opportunity to provide local jobs and serve the wider economy, it can also meet local housing needs as well as contributing to the stock of well designed private sector housing. In fulfilling a wider strategic role the site should meet locally defined community needs. The site offers the potential to create a new sustainable urban quarter that seamlessly integrates with the adjoining areas. The development of this site can significantly improve accessibility in the area making it more attractive to pedestrians and users of public transport. Access to the station from the east of the city is poor at present and the development of this site presents an opportunity to make significant improvements. The development approach that is adopted here and the success of its outcomes has the potential to influence urban renewal in the future both within the city and the wider region.

The need to ensure the right form and content of the development is self evident, but bringing this important brownfield site forward for development after almost a quarter of a century of neglect is a challenge for all stakeholders. It will require a new kind of partnership to bring it about. The development of this site should not be viewed as a typical speculative opportunity and a standard development response will not be appropriate or likely to be successful. An innovative approach that brings together, and uses as a resource the expertise of the different sections of the community, and that brings in acknowledged experts in delivering sustainable development, to form new types of partnership, will be required.

The brief will be issued as Supplementary Planning Guidance to be read in conjunction with the current and emerging development plans.

Vision for the site.

In putting together a brief and setting the development principles that will guide future development it is considered essential to have a clear vision for the site.

The Council’s vision for the Brighton Station site is therefore: -

Sustainability.

One of the main principles underlying the development of the site is that of sustainability. In the context of this site sustainable development is about maintaining and improving quality of life, without degrading the local environment and ecological systems that support it. In ‘ A Better Quality of Life’ the government sets out four main aims for sustainability, all of which are relevant in developing this brief.

i. Social progress which recognises the needs of everyone

ii. Effective protection of the environment

iii. Prudent use of natural resources

iv. Maintenance of high and stable levels of economic growth and employment

Boundary of Area covered by the brief

The area covered by the brief includes the site currently in the ownership of Railtrack, Ann Street and the London Road car park (as they are integral to the future vitality of London Road), and the open land to the north of the station site.

A key objective of the council is to see an area wide regeneration approach which brings about the development of the station site, helps revitalise the whole area, and improves links with London Road, the station and North Laine. Solutions to issues raised in this brief might arise on other nearby sites and are therefore not precluded from consideration as part of any subsequent planning application. For example opportunities might present themselves on sites outside the above boundaries to improve the vitality of London Road, and improve accessibility generally in the adjoining area.

The council would consider if necessary the use of its compulsory purchase powers in order to achieve the area wide approach, in particular linking the station site with London Road.

Purpose and scope of the brief

• the brief will be the catalyst for bringing this under-used site forward for development in the shortest possible time scale

• the brief will provide the framework for developing a mixture of uses which contribute to the economic and social well being of the local area and the city as a whole, the brief will bring certainty to the mixture of uses required and standards to be met whilst not being too prescriptive, or so inflexible that it cannot respond to changing circumstances or new opportunities

Objectives of the brief

• The brief will facilitate a mixed-use development, which fully integrates the different uses within the site. It will seek a balance of uses that, brings diversity and vitality into the area

• the brief will set the criteria for improving accessibility throughout the area, and provide for a major new access , with improved interchange facilities to the east side of the station

• this prominent site is strategically important in transport terms and it is essential that the brief not only addresses specific local transport needs but also makes a major, unambiguous and imaginative contribution towards the Council’s goal of achieving a modal transfer in favour of public transport, walking and cycling and away from the car

• the brief will encourage and stimulate a design approach which produces the highest possible townscape with appropriate densities, scale, heights, grain, street patterns, and standard of design, without being an inhibitor to innovative and exciting design

• the brief will not set rigid standards on layout and density, but will encourage a design approach that maximises the potential of this site for a high density development which respects the historic and adjoining patterns of development

• the brief will establish the criteria and policies to assist with meeting housing, employment, and community needs in the area

• Through the implementation of the Councils percentage for art policy, and the creation of small-scale employment opportunities, the site will establish itself as a centre for artistic excellence and a stimulus for creative design.

• the brief should take account of the needs and aspirations of established local communities, but must also look to the needs of the city as a whole and the needs of the new community that will live and work on the site as a result of this development

• The brief must be compatible with other regeneration strategies and proposals in the area, and must contribute to the regeneration of London Road and the wider area.

• the contents of the brief will be both viable and capable of being delivered

2.1 Site description

The site (excluding land outside the ownership of Railtrack) is adjacent to the town’s main rail station, about 4.8ha in area (nearly 12 acres) and is part of the former goods yard. The station itself (which handles over 7 million passengers a year) is owned by Railtrack and is a grade II* listed building and is situated within the West Hill Conservation Area.

There are substantial differences in levels within the area and the site itself is split into 2 main levels with extensive retaining walls. New England Street is estimated as being between 13-17 m below the level of the station car park.

The upper level of the site comprises of a 600-space commuter car park that serves the station and is leased to Connex. The northern part of this site is used on Sundays as an open/car boot market. Vehicular access to the station car park is from Cheapside and is provided by means of a ramp. There is presently no proper pedestrian access to the upper part of the site.

On the lower level at the bottom of the ramp that leads to the car park, fronting onto New England Street and Cheapside, is a range of small mixed uses. The lower level, which has much derelict or vacant land, also comprises of several short-term commercial use tenants.

Due to the industrial nature of previous uses the site is known to be contaminated, but the full extent of contamination is yet to be determined.

At its northern boundary near New England Road, is a disused railway cutting (with some sidings still intact) that run south through the site and borders the area north of Trafalgar Place. In 1992 this site was designated an area of Nature Conservation Importance (SNCI). The same site, with minor boundary alterations, will be proposed as a Brighton & Hove SNCI in the forthcoming Local Plan, which will include a specific policy addressing SNCI’s and their conservation. Also part of the site is designated as both a Biological Corridor and Nature Conservation Priority Zone and protected by its policies in the 1992 Brighton Wildlife Strategy.

To the east of the site is Ann Street, which provides a link between New England Street and London Road. On the north side of Ann Street, immediately adjoining the site, is St. Bartholomew Church, a grade 1 listed building.

On the corner of New England Street/Ann Street and adjacent to St. Bartholomew’s Church is St. Bartholomew’s Primary School, a 1960’s development. To the rear of the school and church, between New England Street and the rear of the shops fronting London Road, is the London Road multi-storey car park — vehicular access to this is from New England Street. The play area for the school and 53 residential units are situated on the roof of the car park.

2.2 Surrounding area

Three conservation areas surround the site: South of Trafalgar Street is the North Laine Conservation Area, characterised by narrow terraced streets with distinctive individual shops and cafes. To the west and north west , including the station, is the West Hill Conservation Area. The Valley Gardens Conservation area to the east includes part of the London Road centre.

Further to the east, London Road and New England Street run more or less parallel to one another and are linked by Ann Street. London Road is part of the A23 (London-Brighton) road and forms the core of the shopping area and functions as a local high street with daily shopping needs. A characteristic of this shopping centre is the high percentage of shopping trips undertaken by bus.

Good views exist both into and out of the site, and the site is readily viewed in the context of the two dominant listed structures.

2.3 Site History

The station stands on a huge man-made plateau. It was originally developed in the 1830’s and opened in 1841. Plans for a goods yards (known as lower goods yard) and engine sheds were originally arranged in the 1840’s to the east of the station, 30 feet below the passenger tracks and were initially accessed from the Shoreham branch via a tunnel below the London line. The tunnel still exists and has been used in the past as a communications centre and rifle range.

The lower goods yard continued to be developed upon until the 1890’s. Further extension to the site took place in 1905 when a coal yard was opened on Peel Place, Peel Street, Queen Street, Fleet Street and Cavendish Place North.

North of the site, the large engineering/railway works, accessed via Cross Street/Boston Street, was responsible for building and maintaining the London to Brighton Railway stock. The works also handled marine engineering for the company’s cross channel fleet. In 1891over 2,650 people were employed on the railway works site.

Prior to the railway the street and housing pattern of the North Laine continued through the site, providing terraced workers cottages. Ann Street originally continued west into the site. These streets, to the west and south west of New York Street (now southern end of New England Street), together with Elder Street and London Street (between New England Street/New York Street and Elder Place/Providence Place), have since been demolished.

Over the last 80 years the site has gradually declined, with the works moving out to Lancing and Newhaven. There was revival during the 2^nd World War, although the site suffered bombing, and over 850 men were still employed there. The last locomotive was produced in 1957 and the engine works were closed completely in 1958. The buildings on what is now the car park were demolished in 1969. The remainder of the goods yard was finally closed by British Rail in the 1970’s although used by National Carriers with a few carriages until finally closing in 1980.

The DOE listed the station in 1973 after recognising its architectural merits and following vigorous public opposition to British Rails plans to totally rebuild the station with an office complex and a hotel above. In 1988 the station was included in the West Hill conservation area.

2.4 Planning History

The 1993Planing Brief

The site was the subject of various proposals and possible traffic schemes, which prompted the council in 1993 to prepare a brief for the site.

Vision:

— to create an area west of London Road of vital, urban, mixed use townscape which links a regenerated and environmentally enhanced London Road shopping centre with North Laine and the station. Key to this is a traffic management solution for this important entry to central Brighton, which gives clear priority to buses and encourages modal shift from private cars.

Main objectives:

- To regenerate London Road shopping area by providing bus priority measures and improving the pedestrian environment

- To improve the townscape of the area by bringing forward vacant land for appropriate development

- The need to maximise person access to the town centre corridor by encouraging modal shift from private cars through this key access corridor.

Other important principles

• development should be of a scale and design in keeping with adjacent listed buildings and conservation areas and with appropriate landscaping;
• new land uses should not add to existing peak traffic flows;
• development should, through design and the mix of uses, bring life and vitality to the area;
• increasing highway capacity for private cars should not be a priority;
• modal shift from existing traffic should be maximised;
• traffic displacement onto unsuitable roads elsewhere or into environmental areas should be avoided;
• land-take and demolitions for highway purposes should be minimised.

Common land use considerations

• housing — preferably for local needs, special groups and small households
• shopping — only a small amount of net additional floorspace to complement and strengthen London Road and North Laine
• Business use — a small amount of floor space, including academic related business use
• Leisure/community facilities

Public open space.

Sainsbury outline application proposals — BH1997/00244 and BH1997/01178

The application proposed a superstore of 5,740 sq.m gross (3,530 sq.m net) floor space, with 325 space surface car park, together with 50 residential units on 3 storeys north of proposed store — all affordable in 3-storey building. Also proposed 4,645 sq.m of B1 floor space on 2 levels with 80 car park spaces.

Council’s refusal due to:

• traffic impact
• operation of store car park
• would harm ‘nature conservation interests’
• retail component ‘sufficiently at variance with current policies’
• sufficiently at variance with current transport policies
• adverse visual impact on nearby listed buildings
• harmful more generally in townscape terms as it would remove the opportunity for comprehensive redevelopment and regeneration
• serious under-provision of housing

The Planning Inspectorate decision of 23 September 1998 dismissed the Appeal, In doing so it established four criteria by which any future development should be judged.

It should support London road and not effectively act as an out of town facility

Parking provision and travel modes should contribute towards a sustainable development

It should take account of the surrounding conservation areas, and listed buildings

Provide adequate housing to meet needs

Following the Appeal decision a community planning event was held over the week-end of the 8^th-10^th of October 1999, with a feedback session on the weekend of the 22^nd-23^rd of October. This generated a variety of good ideas, and directly lead to the establishment of a working group to evaluate and take them forward to produce this planning brief.

1. Housing

 

The total number of dwellings to be provided on the site will be within the range 270 to 400 units. The challenge will be to demonstrate that high density urban living can be made attractive for all sectors of the community, with a range of dwelling types and tenures, that properly integrates social and private sector housing. An innovative approach to housing design will be expected, with the fullest possible use of new technologies to ensure energy efficient flexible housing that can adapt to meet the needs of its occupants, throughout changing personal circumstances.

 

Affordable component

The minimum requirement for affordable housing on the Brighton Station site is 30% of the total number of dwelling units (a minimum of 90 units).

At least 30% is the requirement as there is a substantial body of evidence of local need in the central Brighton area, including housing need surveys, homelessness data and the Council’s waiting and transfer lists. A lack of alternative sites highlights the need to ensure that the affordable units are provided on site.

 

Tenure

The recent strength of the housing market has accentuated a substantial gap between average incomes in Brighton and Hove and market prices and rents. Accordingly, there is a particular need for subsidised, rented accommodation and this should be reflected in the scheme. A smaller element of shared ownership accommodation may also be appropriate and, or self-build units that reflect local needs. Co-operative housing as a means of increasing participation in the development and management of the scheme should be considered. If self build or co-operative housing does not form part of the final scheme then the developers will need to demonstrate why not.

 

Delivery mechanism

The Council’s preference is that affordable housing should be secured and maintained with the involvement of a Registered Social Landlord (RSL).

The strategic importance of the site underlines the Council’s commitment to facilitating and enabling development with housing association partners. The Council has established the Brighton and Hove Housing Association Partnership and will seek the early nomination of a member association(s) to develop the affordable units.

Practical and cost benefits will be delivered by a nominated housing association(s) working on a partnership basis with the selected developer(s) of the ‘market’ housing.

 

Dwelling Size

At least two-thirds of the affordable dwellings will be expected to provide family sized accommodation of 3+ bedrooms. There is an acute shortage of 3+ bedroom accommodation and few opportunities to increase provision through the development of new sites. In accordance with the Council’s Housing Strategy, it is important to maximise those opportunities that do arise.

Whilst ‘suburban style’ low density’ housing is unlikely to be appropriate in this location, higher density 3+ bedroom ‘town houses’ might be suitable. The remainder of the affordable units should comprise a mix of 1 and 2 bedroom flats.

The need for larger accommodation is not confined to the provision of affordable housing. The market element of any proposal should cater for a range of local needs. The Council’s Private Sector Housing Strategy identifies a particular shortfall in the provision of larger, private rented houses/flats in central Brighton.

 

Design and layout

It is important that the affordable units remain an integral part of the overall design, or ‘vision’ for the development of the site. Similarly, the proposed layout must avoid any sense of an affordable housing ‘ghetto’. For this reason a design and build element for the affordable housing as a means of reducing costs is unlikely to be acceptable. The design and layout should ensure that the units are fully screened and insulated from noise nuisance.

Amenity and play space provision should reflect the dwelling mix and the resultant needs of occupiers.

The site is particularly well located for the provision of car-free housing. Where a Housing Association is involved, tenancy agreements provide a suitable mechanism for ensuring that the affordable housing units remain genuinely car free.

 

Mobility and wheelchair standards

Houses and flats should be constructed to a basic mobility standard consistent with the concept of ‘lifetime homes’ and at least 10% of the total number of housing units should be constructed to a wheelchair standard in accordance with existing Local Plan policy.

 

Energy efficiency/Recycling

Houses and flats will be expected to demonstrate a high standard of energy efficiency, in terms of their construction, including the use renewable materials, and running costs. Residential units will be assessed with reference to National Home Energy Rating (NHER) measures. In addition, to specific energy saving measures, individual residential units will be assessed for energy efficiency in terms of their siting, layout and orientation.

Provision for domestic recycling should be an integral part of the design of individual units and the overall housing element of any proposal.

2. Employment

 

Office Space

Forecasts for the Brighton & Hove office sector estimate a shortfall of office space to 2011 of between a low of 262,805 and a high of 828,679 sq ft.(24,414-76,984 sq m). This requirement does not take account of any losses of office space over the period, and is likely to be almost entirely for new modern-specification space.

The southern end of the station site is adjacent to the successful Trafalgar Place office development. Commercial demand for office accommodation varies over time. However, in as much as Brighton & Hove has a modern office core, the North end of Queens Road and Trafalgar Place next to the station are locations which suit modern office occupiers and this has resulted in good take up of vacant buildings there. The total take up in Brighton & Hove during 1999 was 177,000 sq ft.(16443 sq m). The Council would therefore consider proposals for offices on the station site particularly on the upper tier, which met the forecast demand for new office space in Brighton.

There is also a case to allocate land to either retain existing employers seeking to expand, or to ensure that there is sufficient land to attract inward investment. The owner/occupier market could also provide additional demand.

The council is not prescriptive regarding the amount of office space required on the station site, but believes that due to its strategic location, office development in the order of 125,000-250,000 sq ft (16125-23,225 sq m) could be accommodated.

Workshops

The scheme should provide for at least 20,000 sq ft (1858 sq m) of small workshop space. This would provide valuable employment space and serve community needs for locally based services. The council expects that rents should be affordable by the small business users, and this pre-supposes a degree of subsidy since such rents would not support a purely commercial development. The possibility of combining workspace with living accommodation should be explored to produce a sustainable development..

20,000 sq ft (1858 sq m) would equate to 20-40 small modern workshop units.

Training Centre

The site’s location in the heart of the urban fabric offers an opportunity for a business/training/community resource on the model of the Denton Island Business Centre in Newhaven. This would provide space for business support organisations, e.g. the Enterprise Agency, a joint training centre for BCT and the universities for ICT and other training, and space for community activities. Meeting and small conference rooms would be available to voluntary and community groups as well as for small business support. The project could potentially be part funded from SRB. These activities could be accommodated on a footprint of around 20,000 sq ft. (1858 sq m)

 

3. Retail

Retail can create activity and add to an area’s sense of vitality. Retail is therefore seen as an essential part of any mixed-use development on this site. A certain limited amount of retail would be desirable to serve the needs of the development; it could also help provide an element of vitality, and activity at street level. Such retail could include a café/pubs and local shops but would not be expected to compete with existing retail centres. This retail would need to be related to expected patterns of pedestrian movement through the site. The size and quantity of such retail would need to be related to the scale of activity on the site, and be able to demonstrate that it would not be prejudicial to existing established retail areas.

The council considers there is no quantitative need for additional food retail in the area. However, the council considers the vitality and vibrancy of the London Road shopping centre could be enhanced by a quality modern food store. A food store could also help secure the development of a sustainable mixed use scheme on the site with substantial community benefits , However a food store would only be acceptable on the station site provided: -

There was no suitable site in or immediately adjacent to London Road

The possibility of developing the existing London Road car park for a supermarket, and creating a link through to London Road had been properly explored, and demonstrated not to be feasible or viable

That it would not adversely effect traffic conditions in the locality, and makes a positive contribution to the objective of achieving a modal shift away from car usage

That clear and significant links are created to London Road, from a number of access points. In this connection re-paving Anne Street would not be considered sufficient in itself

That the existing London Road car park enhances its role as the car park for the shopping centre and station site

That the possibility and capability to provide innovative methods of shopping utilising modern information and transport technology is fully considered

The existing Sainsburys supermarket has a sales area of approximately 1250 sq m. The size of any new supermarket should not exceed 40,000 sq. ft (3716 sq m) gross floor space (25,000 sq. ft, 2322 sq m. Net sales area). This is two thirds of the size of the store rejected at the Inquiry, and falls within the definition in PPG6 of a supermarket rather than a super store.

 

4. Hotel and leisure

 

A 400 bedroom, three to four star hotel with conference facilities would be an acceptable use on this site. Any such building would need to be well related to the station to make full use of the potential to attract rail passengers, as the normal parking standard of one space per room would not be appropriate on this site.

If the hotel use does not come forward then commercial leisure facilities that are compatible with the overall objectives of the brief might be acceptable, but special care would be needed to ensure that it met both the stringent design and traffic standards.

Proposals for a football stadium on the site were fully explored and rejected for a number of reasons, including most importantly the incompatibility with the strategic and local aims for the site outlined elsewhere in the brief.

 

5. Community uses

A range of community uses were suggested at the community planning event, these will need to be compared with uses to come forward from the councils social services department, education department, and the community development team. Furthermore work is being undertaken through SRB 5, and probably 6 to work directly with the community to establish needs and priorities. No specific uses are therefore set out in the brief, but potential developers would be expected to work closely with both the council and community to provide a range of community benefits, which are properly integrated with the scheme, and phased accordingly.

The buildings housing community uses should be flexible to meet changing community needs.

 

6. Open spaces

 

The site has an important green corridor, which will need protecting and enhancing. But if the site is to achieve the high densities required then great care would be needed to ensure that there is adequate usable amenity space, and that undue pressure is not put on the green corridor risking its ecological importance. Loss of any of the green corridor should be resisted, but where un-avoidable adequate compensatory land should be provided.

The standard of open space provision required in respect of this development are outlined elsewhere in the brief, but in order to make a positive contribution to the open space requirements of both the development and the area as a whole. Consideration should be given to including the open land to the north of the site within the development area.

 

7. Station Improvements

Sufficient land must be provided to improve interchange facilities. There is a real opportunity to provide better access to the station particularly for pedestrians. Although depot facilities are not required the opportunity to improve bus access to the station and waiting facilities for passengers should be considered.

There is an existing commuter car park on the site, with approximately 600 spaces, which would have to be retained at least in the short term, and integrated into the overall design of the site. Its potential to contribute the development overall should also be considered. Proper consideration should also be given to phasing out these spaces as car usage reduces.

The development will be expected to show how it has met the following development criteria:

Urban design

The design criteria does not set out to impose rigid design rules, but rather sets out the approach expected to develop the site to the highest possible standards of design.

In submitting a planning application a design statement would be required which analyses the site and surrounding area, and demonstrates how the proposed form and layout of the development were arrived at.

Some of the key design principles would be: -

To create a new urban quarter with its own clear and legible sense of identity, that respects and enhances local street patterns and urban character

To ensure permeability by creating a network of unhindered routes that flow through the site

To take community safety into account at the design stage; by the creation of active frontages which provide natural surveillance whilst contributing to the overall vitality of the area; provide a safe but attractive and sensitively lit night environment

To ensure the density makes the most effective use of the site. The development must show an understanding of and respect the varied scale of buildings and development in the adjoining area. The appropriate heights of the buildings would follow from the layout of the scheme and its relationship to adjoining buildings and the surrounding area rather than being set out in the brief. This is meant to bring variety in heights and scale and should not be construed as an invitation to take the largest building in the locality and use this as a template

Likewise day lighting should be a consideration in determining the scale and layout of new buildings, and all buildings should enjoy natural light, particularly to habitable rooms. Over-shadowing and undue overlooking that leads to serious loss of privacy should be avoided.

Orientation of the buildings should maximise energy efficiency and avoid creating wind tunnels. Buildings particularly residential buildings should be screened from any potential noise generators.

The layout should work with the grain of the surrounding area, and show an understanding of the historic patterns of development. Advantage should be taken of the topography to create a varied and exciting townscape. The slope should be exploited to create new views into and out of the site.

Roof-scape will be important due to views in to, out of, and within the site. False roofs will not be tolerated, and all plant and machinery should be incorporated in roof voids and not be added on as an after thought

Details of materials will be left to the skills of the designer rather than be set out in the brief, which should be quite clear the highest standards would be expected. Where ever possible locally sourced materials should be used. The use of natural materials from sustainable sources, and recycled materials will be preferred, including re-use of any waste materials generated on site. Chorine bases materials i.e. UPVC should be avoided.

The proposals should develop a hierarchy of quality spaces, which range from exciting active spaces too quiet reflective spaces.

Existing views both across and out of the site are of considerable importance and the scale and location of new buildings should respect both short and long views of listed buildings,

Landscaping should be an integral element of the design process and not a means of treating the spaces left over after development. A structural landscaping plan should be submitted at the planning application stage. The landscape design should aim to maximise the visual attractiveness of the site, and enhance its ecological value

The necessary response to the councils Percentage for Art policy should be incorporated in to the initial designs

The scheme should act as a gateway to this part of the city providing a stimulating and inviting aspect specially to visitors arriving by bus and train, and should be an enticement to visit and use the area

The principle of serendipity should guide the design, and whilst the layout would have a logic and consistency to ensure that users were not permanently lost or disorientated, the series of spaces and linkages would create a sense of surprise and delight as they unwound

The council will use the architect’s panel to advise on the quality of the proposed design.

Open space

 

In a high density scheme such as envisioned for this site, the provision of usable open space is essential. The current local plan policy sets a guideline of one acre of public open space/play area per 200 dwellings. If this cannot be provided on site then a commuted sum might be acceptable, together with an agreed sum for maintenance. In this case preference would be given to finding usable open space in or close to the site itself. The area around the station site is poorly served by open space so at least some provision must be made within the development site.

Draft local plan policy is based on the minimum standards recommended by the National Playing Fields Association (NPFA). The new policy will require 2.4 hectares (6 acres) of outdoor recreation space per 1000 population or part thereof. Open space should be provided and properly equipped for children’s play, and adult/youth outdoor sport.

Sustainability Principles

 

It would be expected that the development would make a major contribution towards the current debate on developing new sustainable urban quarters. Nothing less than an exemplar, which sets new standards in sustainable design, is required for this unique site.

Sustainability criteria will be one of the main set of principles against which any future planning application is judged, but they cannot be the only criteria, what is viable and what is deliverable must also be major considerations. The sustainable qualities expected in future developments will seek a balance between environmental sustainability, and creating sustainable jobs and sustaining the local economy. The development will be expected to be as self contained as possible and not consume large amounts of external resources, but at the same time such a high density mix of uses cannot be expected to be totally self sufficient.

An Application for planning permission should be accompanied by a life-cycle assessment to analyse and minimise the environmental impact. The Building Research Establishment Environmental Assessment Method (BREEAM) should also be employed at the early stage in the design process.

The planning application should include a full Environmental Impact Assessment (EIA) which considers the impact of the development on every aspect of the local environment, including.

Construction phase

Construction methods should be chosen which minimise the impact on the local neighbourhood. Transport of raw materials and removal of waste potentially has a large environmental impact, and should be considered in the EIA. The potential should also be explored to use recycled material in construction. The EIA should include an investigation for temporary facilities on site for processing waste materials generated during construction. Details should be given of the routes and destination for any construction waste to be removed from the site.

Operation of the Buildings

Research has shown that the greatest impacts on the environment (particularly energy consumption and CO2 emissions) occur through the operation of the building. The design of all buildings should incorporate energy saving features, and consider the scope for solar energy (water heated by Sun) or photovoltaic cells (use of solar energy to produce electricity).

Recycling

The EIA should investigate the potential for recycling rainwater and wastewater on site.

Facilities for residents/workers on site should be provided to enable recycling of domestic and commercial waste produced on site and adjoining area.

Protecting and Enhancing Biodiversity.

The EIA should show how the wildlife habitats existing on the site will be protected both during the construction period and after. Enhancing wildlife habitats could provide opportunities for recreation and enhanced equality of life in area.

 

Transport Issues

An independent assessment by traffic consultants has concluded that, there would be no technical objection, in principle, on transport grounds to any of the land uses envisaged in the draft brief, including a supermarket.

The development, taken as a whole, must make a major, unambiguous and imaginative contribution towards achieving a modal shift in favour of public transport, walking and cycling and away from the private car.

The development will, by virtue of its composition, design and management gives very high priority to:

Initiatives to reduce demand for travel by private car

The development will establish (through works within and beyond the site) safe, convenient and attractive routes for access to and from the site on foot and by bike from the established walk-in catchment area of London Road, including:

Residential areas to the west of Queens Road

The North Laine area

Residential areas to the north of Preston Circus and

Residential areas to the east and south of Lewes Road/ Valley Gardens.

The development will, through design and through financial contributions to off-site works or services achieve the highest possible level of accessibility by public transport. In particular, the overall level of accessibility by public transport to any major retail element within the development will compare favourably with that to existing retail units in London Road.

The development will establish the closest possible integration with the immediately adjoining areas to facilitate and encourage movement on foot between London Road, the Railway Station, the College of Technology campus and Trafalgar Street. The integration between any supermarket element within the development and London Road will be particularly important and will require at least two attractive linking pedestrian corridors of a higher standard than is likely to be achieved through utilising existing side streets.

The development will incorporate a through route for traffic between Cheapside and New England Road. The capacity of the route including junctions at New England Street and New England Road, London Road and Cheapside shall be capable of accommodating existing traffic, and traffic currently north bound in London Road (excluding Buses) as well as traffic generated by the proposals. No part of the highway network within the site will operate in excess of 85% of capacity. The through route may run to the west of New England Street in which case it would be acceptable and desirable for part of New England Street to be closed to vehicular traffic (subject to maintaining access).

Normal highway design standards (including signing) may be relaxed in appropriate circumstances to create a less highway-orientated development, and facilitate the right urban design, provided that highway safety is not compromised.

Pedestrian and cycle routes to from and within the site must be clearly signed

The development will incorporate a high calibre, safe, secure and attractive pedestrian route between London Road (in the vicinity of the Cheapside/ Ann Street bus stops) and the railway station. The railway station should develop a physical ‘presence’ at the lower (Trafalgar Place) level, so as to minimise the perceived separation between London Road and the railway station.

Servicing within the development site will be efficient and discrete and environmentally friendly, with minimum conflict with pedestrian routes and minimum impact on townscape.

Parking will be at the lowest level possible consistent with efficient operation. The level of provision and the regime for management of parking will be established with the expressed objective of minimising car usage. Through design and the adoption of appropriate management strategies, new parking within the development will be integrated as closely as possible with existing parking in the area, especially the London Road car park, making greatest possible use of that asset. The quality of parking provision and facilities for cyclists must be to the highest standards

The development must incorporate high quality access and provision for the transport needs of the disabled. The scheme should explore the possibility of introducing a shopmobility scheme in conjunction with London Road.

The development will, through design and the adoption of appropriate management regimes, introduce imaginative and creative means of reducing the demand for vehicular movement and, in the case of residential, elements, for car ownership. The potential for car-pooling and car sharing should be thoroughly explored.

Any development proposal will be accompanied by a full Transport Assessment (TA). The required scope of the TA is set out in an appendix.

5. IMPLIMENTATION

5.1 Phasing

The scheme could be developed over a number of years and any planning application will need to be explicit as to how the scheme might be phased to ensure that the infrastructure is provided and the whole of the scheme is developed.

Different parts of the scheme could be funded and developed by different parties, operating to different timescales. In submitting an application sufficient detail will be required to convince the council that the high standards proposed will be maintained throughout the development. Changes in ownership or market conditions would not be an acceptable reasons for compromising on the high quality of development expected for this site.

Although many of the details of the scheme could be treated as reserved matters, due to the interrelated nature of the different parts of the scheme an outline application would not be appropriate for this site

5.2 Services

All new services should be planned in advance and provided with the rest of the infrastructure. It should be carefully planned in relation to the existing and proposed planting to ensure damage to roots does not occur. The future maintenance and the avoidance of disruption should be considered at the planning stage.

Given that the development is expected to demonstrate an innovative approach, there should be a plan to ensure that it is fully ‘wired’, and able to meet future changes in technology. Any telecommunications infrastructure including cables masts, or dishes, should be incorporated into the overall design.

Contamination

The site is known to be contaminated and a methodology and sequence for dealing with it should accompany any planning application.

 

Community involvement

Whilst not wishing to see the scheme designed by committee, the brief should explore an ongoing role for the community and other stakeholders in advising on different aspects of implementation. This might include the community benefits, the layout and use of the public realm, to ensure that it is accessible for people with disabilities; the layout and management of open spaces particularly the green space

APPENDIX 1  

POLICY CONTEXT

General policies

All development is required to be more environmentally sustainable in the longer term. This will mean meeting the need for homes, jobs and facilities and services for all sections of the community, minimising impact on the environment, reducing the need to travel and improving accessibility, whilst improving traffic conditions. Attention will be focussed on revitalising and diversifying the economy and regenerating the physical environment within Brighton and Hove including the effective reuse of "brown" sites to avoid the use of "green" sites, along with the protecting and enhancing character of urban areas. (PPG1, para.1, 5 and 7: PPG3, para.21 and 22: PPG4, para.21: PPG12; RPG9, para.23: Structure Plan Policies S1, S4, S6, S13).

Mixed Use

Mixed-use development can help vitality and diversity and reduce the need to travel (PPG1, para.8: PPG13, para.1.7. and 1.8.).

Major mixed use developments should be in locations well served by public transport, have adequate infrastructure and are properly integrated, in terms of land use and design with surrounding areas (PPG1, para.9: PPG3, para.46).

High quality, mixed-use developments, on large sites within urban areas are characterised by:

Compactness;

A mixture of uses and dwelling types including affordable housing;

A range of employment, leisure and community facilities;

High standards of urban design (designing places for people);

Access to public open space and green spaces;

Access to public transport.

(PPG1, para.12: PPG3, paras.11 and 46: PPG4, para.10: PPG6, para.4.6: PPG12, para.6.14).

Housing

Effective use of land within urban areas should be made by allocating the maximum amount of housing to previously developed sites and to provide a mixture and range of types of housing, including the need for affordable housing and to ensure that housing is available where jobs are created (PPG1, para.24).

Priority will be given to maximising the supply and use of housing within the existing built-up area (BBLP policy H2).

Decisions about the amount and types of affordable housing to be provided in individual proposals should reflect local housing need and individual site suitability (PPG3, para.16).

Schemes should aim to provide accommodation by a variety of means and tenures to meet specific local requirements, e.g. low-cost market housing, sheltered housing, lifetime housing or accommodation for those with specific physical or mental health requirements (Structure Plan Policies H4, H6). To cater for small households and to make the best use or land new housing should be built at least that of surrounding areas (Structure Plan Policy H8). The recycling of existing developed land and buildings will be strongly encouraged (Structure Plan Policy H9).

Brighton Station site will be used for residential development. An appropriate proportion will be used to meet housing needs (BBLP policy HP2).

The Council will endeavour to ensure the inclusion of an appropriate element of land for affordable housing on privately owned sites (BBLP policy H3).

Economy

A strong positive approach to economic development, integrated with environmental protection will be followed. Property will be provided to meet the needs of the local economy, specifically providing for small firms, including starter units, and located in areas accessible to the local workforce by alternatives to the private car. The loss of existing commercial sites will be resisted and support given to proposals to re-use these sites. A close relationship between housing and employment will be sought to provide sufficient local jobs and to reduce the need to commuting (Structure Plan Policies E1, E3, E5, E7, E13).

Office Development is proposed on the Brighton Station Site (BBLP EP6).

Environment

All development will be expected to sustain, conserve and enhance local character and diversity (Structure Plan Policy EN1). Proposals will be required to minimise all forms of pollution (Structure Plan Policy EN11, 13, 14, 15). Within towns, areas of wildlife interest will be protected and enhanced (Structure Plan Policy EN21). Sites of nature conservation, archaeological/historical interest and the built environment will be protected and enhanced (Structure Plan Policy EN17, EN23, EN26). The conservation of energy, including use of renewable sources will be sought within development proposal (Structure Plan Policy EN27, EN28). Opportunities for creating further amenity space and natural habitats will be taken (BBLP policy ENV58).

Access

Housing should be located so as to provide a choice of means of travel to other facilities (PPG13, para.3.2). Proposals for development should secure a more accessible environment for everyone. This will include access to and into buildings and the need for accessible housing (PPG1, para.33).

Open Space

New housing should incorporate sufficient provision for open space where such spaces are not already adequately provided for (PPG3, para.53).

Within substantial new developments developers will be require to provide public open space in addition to that provided for individual dwellings. If this is not possible then commuted payments maybe sought (BBLP policy H18).

Retail

There is no case in quantitative economic capacity terms for further convenience goods floor space in Brighton and Hove over the Plan period (Brighton and Hove Retail Study P.92). Any arguments for additional floor space would need to be argued on qualitative grounds, that it made a positive contribution to established shopping centres.

The role of London Road will be maintained and enhanced (BBLP policy S.7). Development at Brighton Station shall include provision of convenience and durable shopping to reinforce London Road (BBLP policy SP9).

Locations for new retail development should sustain and enhance the vitality and viability of existing centres (PPG6, para.4.2.). and should be in areas with good accessibility by public transport, walking and cycling. Considerations as to whether a proposal is acceptable are the extent to which the proposal puts at risk the strategy for the existing centre; The likely effect on future private sector investment; Changes to the quality, attractiveness and character of the centre, and to its role in the economic and social life of the community (PPG6, para.4.2 and 4.3: Structure Plan Policies SH1 and SH6: BBLP policy S11).

Proposals on the edge of centres will have to demonstrate a lack of suitable sites within the centre (Structure Plan Policies SH1, SH6).

How the store functions and not just where they are located determine interpretation of edge of centre (PPG6, para.3.14: Sainsbury's Appeal Decision).

The amount of parking should reflect the fact that a higher proportion of customers is likely to arrive by means other than the car (PPG6, para.3.15.).

LPAs should negotiate for car parks at edge of centre supermarkets to play a dual role, as car park for the centre as well (PPG6, para.3.16.).

Leisure and Tourism

The Council will continue to promote and develop Brighton as a major conference and exhibition centre (BBLP policy T.6). Facilities will be supported where they are compatible with the conservation of the environment and local character, and where accessibility by means other than the private car, and to all economic, social and cultural groups, is provided (Structure Plan Policy LT1 and LT2). New developments will be expected to contribute to arts support (Structure Plan Policy LT19).

Conservation

The desirability of preserving or enhancing the area should also be a material consideration in considering proposals not within, but near conservation areas (PPG15 para.4.14: BBLP policy EN33).

Development should be of a high standard of design in terms of its scale, height. Form, mass, density, materials and landscaping and takes account of its surroundings including its effect on the setting of listed buildings (BBLP policy EN3).

Transport

The priorities are the reduction of traffic impact on communities/environment, to encourage greater use of walking, cycling and public transport, and to locate new development so as to reduce the need to travel. Jobs and housing should be located in close proximity to each other and community facilities. Major development proposals to be supported by travel impact assessment. Better integration between bus and rail services will be sought (Structure Plan Policy TR1, TR3, TR4, TR5, TR8 and TR33: Provisional Local Transport Plan).

Encouragement will be given to Railtrack to improve parking provision at all stations and to provide bus/rail interchange facilities (BBLP policy T11).

Major new development proposals will be required to demonstrate how they will relate to strategic pedestrian routes and measures will be introduced to improve conditions for pedestrians and cyclists (BBLP policy TR29 and TR30).

Proposals will reduce significantly private vehicular traffic throughout the town. Priority will be given to the needs of the disabled, pedestrians, cyclists and public transport users (BBLP policy TR7).

Waste

A reduction in construction industry waste will be encouraged by reducing waste from new building projects and by the adoption of construction techniques which encourage the use of recycled waste (Structure Plan Policy W10 and W11).

Energy

The Council will encourage the saving of energy and the use of alternative and renewable sources of energy in the design of new development (BBLP policy ENV50).

APPENDIX 2

Redevelopment of Brighton Railway Station

Scope of Transport Assessment

1. Introduction

2. Accessibility Audit

 

 

Pedestrian access, with particular reference to the areas and links described in the brief.

 

 

 

Cycle access, including reference to links to existing or proposed cycle routes in the vicinity of the site.

 

 

 

Access by bus, including an assessment of the frequency and hours of services for all days of the week, and the reliability of services.

 

 

 

Access by rail, including the frequency and hours of services over the working week.

 

 

 

Access by disabled persons

 

 

 

Access by car

 

3. Development Proposal

 

 

Land uses and areas/sizes

 

 

 

Levels of cycle parking

 

 

 

Levels of private/public car parking, including residual parking on the railway station

 

 

 

Pedestrian/cycle routes into and through the development with particular emphasis on links referred to in the brief

 

 

 

Points of vehicle access, including access to the railway station

 

 

 

Servicing arrangements

 

4. Accessibility Improvements

5. Car Parking

6. Trip Generation and Modal Split

The report will provide:

An assessment of the total number of trips expected to be generated by the development by all modes of travel for the average weekday, and for the weekday morning and evening peak periods.

An assessment, taking into account any improvements to access by non-car modes of travel, and to proposed levels of parking provision and controls, of the likely modal split of trips to the development.

The report should demonstrate that the overall modal split of trips to the development between car and non-car modes meets the transport objectives of the brief.

7. Proposed Highway Improvements and Assessments

The report should detail any proposed highway improvements, and provide an assessment of highway capacity for average morning and evening peak periods, to demonstrate that the proposed development would:

not give rise to a material increase in congestion on the surrounding highway network

not give rise to adverse effects, bearing in mind any improvements proposed, to the operation of the public transport network

8. Highway Safety

The transportation report should set out the existing accident records for the surrounding highway network. The report will include an assessment of the likely impact of the development on accidents, and demonstrate, taking into account any improvements proposed, that the proposed development would not adversely affect highway safety.

9 Environmental Impact

The transportation report should consider the transport related environmental impact of the proposed scheme, and in particular the likely effects on St Bartholomew’s School and residential properties fronting New England Street.

10. Green Transport Plans

The transportation report will provide details of how the developer will secure Green Transport Plans (GTP) from major occupiers, and provide a typical format for such plans.

The Green Transport Plans will need to include a procedure for the annual monitoring of travel patterns to the development in question by all users (i.e. staff, visitors and customers), and include mechanisms as appropriate to enable the control of travel to the development by car, and promote travel by sustainable modes.

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