Greenwich Unitary Development Plan

10. WATERFRONT

GENERAL POLICY AND POLICY CONTEXT

10.1

The Greenwich Waterfront area stretches from Deptford to Thamesmead, including all land to the north of the North Kent railway line (see Map 12). It is an area of strategic importance benefiting from improved transport connections to the West End, Canary Wharf and the Square Mile, other parts of London and the South East.

10.2

The Waterfront Chapter aims to deliver national and regionalplanning objectives for sustainable land use by facilitating the regeneration of large tracts of previously derelict land, set within areas of high heritage value and thriving residential communities. The policies aim to achieve the right balance between development, conservation, and community interests to deliver lasting community benefits.

SW1	The Council will facilitate the redevelopment and re-use of remaining redundant land and buildings in the Waterfront during the Plan period, bringing about the regeneration of the whole area and realising its economic, social, environmental, cultural and recreational potential, to secure the sustainable development of balanced waterfront communities.

SW2	The Council recognises and will seek to enhance the value of the River Thames and Deptford Creek as waterways rich in biodiversity and environmental quality; as Open Spaces, and an essential part of the Borough’s character and landscape in their own right.

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BOROUGH CONTEXT AND REASONS FOR PART ONE POLICIES

10.3

The Waterfront is an area of rich diversity. Parts of the Riverside display a distinguished natural and historical heritage, including the Woolwich Royal Arsenal, majestic buildings like the former Royal Naval College, National Maritime Museum and the Royal Observatory in the Maritime Greenwich World Heritage Site, and strategic open spaces such as Greenwich Park.

10.4

The Waterfront is also an area of dynamic change. Major new development and infrastructure projects contrast with the legacy of dereliction and low investment when the previous Development Plan was adopted. These include the Millennium Dome, the Jubilee Line and DLR extensions, which have generated renewed interest and act as a catalyst for further change. The Waterfront also contains numerous tightly knit residential areas, many dating back to the mid-19th century, and their intimate scale and character contrast with the Riverside industrial buildings and open spaces. Despite the changes underway, some still suffer from a poor environment and inadequate community facilities. However, a range of regeneration initiatives are underway to capitalise and build on the Borough’s improved profile and infrastructure, to improve the quality of life and opportunities for local residents.

Map 12: Waterfront Area

10.5

The Greenwich Strategy encourages more cultural activity in the Borough, promotes the Waterfront Area as a transport route, for recreation and leisure, whilst protecting and enhancing their natural habitats. The characteristics of the principal communities in theWaterfront Area and the development issues for their localities are set out below.

The River Thames

10.6

The River Thames is a major linear open space that frames some of the Borough’s key historic buildings. It is a waterway rich in biodiversity, a transport route, and an archaeological and recreational resource. The Borough contains 14 kilometres of fully tidal river frontage, most of that will be accessible to the public from the Riverside Walk. The Borough has 6 wharves currently reserved for cargo-handling use under Safeguarding Direction and two deepwater mooring sites, near the mouth of Deptford Creek and at Victoria Deep Water Terminal on the west side of Greenwich Peninsula. Downstream from Deptford Creek the waterfront is undergoing considerable development, and as far as Woolwich contains large areas that are predominately industrial in character.

10.7

The London Plan (2004) defines a Blue Ribbon Network that includes the Thames and London’s other rivers, canals, streams and open water spaces. The Blue Ribbon Network recognises the special character of river and canal corridors as both a strategic and a scarce resource, and addresses the competing needs, uses and demands that are placed upon them.

Deptford Creekside

10.8

Deptford Creekside lies to the west of Greenwich Town Centre, and straddles the Borough boundary with Lewisham. It is an area with a significant maritime heritage, containing local authority housing estates and a variety of small scale commercial and industrial uses. It is benefiting from ongoing programmes of environmental improvement and housing estate refurbishment. This will include the demolition of the New Haddo Estate, and its replacement with a mixture of private and affordable flats and family homes. It is also an emerging node for cultural and creative industries as exemplified by the Laban Centre for contemporary dance in the neighbouring Lewisham Borough. The London Plan identifies Deptford Creek ~Greenwich Riverside as an Opportunity Area.

10.9

Deptford Creek is experiencing considerable development pressure. Significant recent projects include a major new residential development on the Western Reach at the mouth of Deptford Creek. There is also heightened interest in a number other sites around Deptford Creek. In response the Council has adopted the West Greenwich Development Framework (2000), incorporating the Creek area and the western end of Greenwich town centre, as Supplementary Planning Guidance. The Framework seeks to ensure that emerging opportunities for the arts, commercial, cultural and creative enterprise are harnessed to further regenerate the area and benefit local communities. It also seeks to further improve public access between Greenwich Town Centre, Deptford Creek and the Thames, to improve public transport, and to upgrade community facilities and open spaces. It is intended to update the framework in 2007/8 possibly with Lewisham Council.

Greenwich Town Centre

10.10

Greenwich Town Centre is a World Heritage Site and a key visitor destination for London. The town is rich in local history and famous for its historic buildings and monuments. It suffers from traffic congestion caused by through traffic and visitors, despite a permanent ban on heavy goods vehicles.

10.11

Development in the Creekside area will extend both the size of Greenwich Town Centre and its range of facilities. The former Royal Naval College and Dreadnought Seaman’s Hospital have been refurbished as visitor attractions and for use by Greenwich University, and the town centre also benefits from the Trinity School of Music and the refurbished Cutty Sark Gardens. The extended Docklands Light Railway is encouraging further investment, and has improved accessibility by linking the Town Centre with Docklands, Central London, and Lewisham without adding to road traffic. As part of the DLR project a mixed-use development has brought an improved range of retail and leisure opportunities to the Town Centre at Cutty Sark station. The proposed Waterfront Transit 2 nd Phase would improve public transport links with other town centres and waterfront visitor attractions in the Borough.

East Greenwich Riverside

10.12

The East Greenwich Riverside comprises two distinct areas. To the north, on the west of Greenwich Peninsula, lies a Defined Industrial Area occupied by two of the Borough’s largest industrial employers, Alcatel and Amylum, amongst others. It includes the safeguarded Victoria Deep Water Terminal, which is expected to remain in use for river-based freight.

10.13

To the south of the industrial area, encompassing land between the Thames and East Greenwich district centre, East Greenwich Riverside displays a mixed, yet traditional working environment. It has strong community ties and contains picturesque cottages, old Riverside industrial structures, and buildings of historic importance. Lovell’s and Granite Wharves, which are either under-used or used for activities that generate problems for surrounding residential areas, have been designated for employment-led redevelopment. Part of Badcock’s wharf is operating as a boat repair yard.

Greenwich Peninsula and the Millennium Dome

10.14

The Peninsula is the largest and most important development area in the Borough, and is home to the flagship Millennium Dome and Millennium Village. The Village is providing over 3,000 new homes, and a new school and health centre have been built. Associated with the development are new retail and leisure facilities, public spaces and a Thameside promenade. The Peninsula is served by major investments in public transport, in particular the Jubilee Line underground station at North Greenwich, which have improved access to the Peninsula from elsewhere in the Borough and from London as a whole. The London Plan recognises the Greenwich Peninsula as an Opportunity Area and the Millennium Village as an example of a new brownfield site urban village development based on a new public transport interchange, applying the principles of Sustainable Residential Quality and urban intensification. The potential of the area will be enhanced by the radically improved public transport networks proposed in the Mayor’s Transport Strategy (2001). The Greenwich Peninsula Development Framework (2002, under review) sets out a vision and plans for future development over the next 15 to 20 years.

10.15

A Masterplan for the future of the Peninsula has been granted outline planning permission (the MDL Masterplan). The Masterplan envisages a new urban quarter based on the principles of sustainable mixed use, high-density environmental quality. The development will bring significant regeneration benefits to the Borough and the wider Thames Gateway region. The Dome will become a multi-purpose entertainment and sports facility and provide large-scale conference capacity. The urban quarter will provide 10,010 new homes, office, retail and light industrial uses, hotel and community uses including schools and health care provision. It is expected that the development will be completed by the early 2020’s.

Charlton Riverside and The Thames Barrier

10.16

The Angerstein Wharf area at Bugsby’s Reach, as defined on the Proposals Map, is a Designated Aggregates Zone. This includes Angerstein and Murphy’s Wharves, which are protected by a Safeguarding Direction. The area also benefits from a railhead (see Policy J2). The Council encourages this area be used more intensively for aggregate production, to take full advantage of its potential for river and rail for transport of raw and finished products. This also relieves wharves in less appropriate locations, which whilst currently still safeguarded are proposed for de-safeguarding for alternative uses by the Mayor.

10.17

The majority of the Charlton riverside area east of the Aggregates Zone is within a Defined Industrial Area, also designated a Preferred Industrial Location the London Plan. It benefits from improved accessibility following the Woolwich Road widening, and is generally well separated from residential neighbourhoods. Regeneration funding is also available for industrial activities and other improvements (see Chapter 2 Jobs and the Local Economy). It will therefore be protected from land speculation pressures and safeguarded for long-term business/industrial use, to provide local employment opportunities and business locations. Continued modernisation and improvements to its commercial building stock would be welcome.

10.18

Charlton Business Park is within a Strategic Employment Location identified in the London Plan. It is a mixed business location and a preferred location for light industry, distributive, and wholesale trade uses.

10.19

The Charlton Riverside is also home to Riverside Wharf (Safeguarded) and the Thames Barrier, an important landmark and tourist attraction. The approach to the Barrier has benefited from a programme of landscaping and environmental improvements, enhancing links to the Green Chain Walk. It offers scope for employment-based diversification including provision of ancillary local service facilities for both business and visitor markets.

Woolwich Town Centre and Woolwich Royal Arsenal

10.20

Woolwich contains the Borough’s largest concentration of retail, community and commercial office activities. Woolwich is identified as being an Area for Intensification in the London Plan and is undergoing unprecedented change and renewal. The town centre will be complemented by development of a heritage tourism and leisure quarter on the waterfront in the Royal Arsenal and adjoining land. The Arsenal is a unique part of Britain’s industrial and military heritage. This, and the adjoining proposed mixed-use Warren Lane ‘Teardrop’ site (Site Schedule mu13) will substantially consolidate and diversify the Town Centre, complementing the range of uses in line with the Woolwich Town Centre Development Framework (1996 & updates; under review).

10.21

During the Plan period the Waterfront Transit will connect Woolwich to other waterfront attractions and town centres, and to the Jubilee Line. Phase 2 is proposed to extend Transit to the DLR at Greenwich. The Council also supports the proposed DLR extension from City Airport to Woolwich opening 2009. These projects are supported in the Mayor’s Transport Strategy (2001) and in the London Plan.

Thamesmead

10.22

While the rest of the Waterfront area is a mixture of established communities and town centres and former and existing industrial areas, Thamesmead is a relatively new community undergoing rapid redevelopment. It is projected that 3,000 new homes and accompanying facilities will be completed in Thamesmead between 2003 and 2016, including the major new Urban Village at Gallion’s Reach and a new urban quarter at Tripcock Point. The London Plan identifies Thamesmead as an Opportunity Area and provides for a range of transport infrastructure works improving accessibility to the wider Thames Gateway. These include the Waterfront Transit scheme and the Thames Gateway (Gallions Reach) Bridge. The latter will have segregated public transport lanes to connect the proposed Greenwich Waterfront and East London Transit schemes.

POLICIES

10.23

The Waterfront Area is defined on Map 12, and the Sites Schedules identify appropriate uses for the main waterfront opportunity sites. Waterfront schemes will be subject to the policies set out elsewhere in this Plan, but the Council has also adopted the following specific policies:

Development Principles

W1	Developments in the Waterfront must:
	i.	Build on and strengthen existing local communities and area character;
	ii.	Conserve and enhance the area's historical heritage and biodiversity;
	iii.	Integrate and connect new proposals with the existing pattern of development;
	iv.	Assist the improvement and regeneration of existing built up areas, providing new uses for old buildings; and
	v.	Encourage active use of the riverfront especially in Town Centres.

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Reason

10.24

The Council aims to ensure that physical and infrastructural developments translate into a lasting social, ecological, physical and economic legacy that enhances the cohesion and character of existing communities, improves the environment, and gives the area a strong physical and functional identity. This intention was at the core of the Council’s original vision in the 1991 Waterfront Strategy. It approached regeneration through a series of development initiatives and new forms of partnership, and provided a framework for future development in the Waterfront. Urban design guidelines were the cornerstone of the Strategy. The Strategy is ongoing but has largely been implemented.

10.25

For larger sites, planning for a balance of facilities at an early stage will be encouraged. The Council also supports construction of buildings that are energy efficient to build and run, that use materials from sustainable sources, and the inclusion of waste separation and recycling facilities.

Thameside Policy Area

W2	The Council will seek a high quality of design respecting the special character of the River Thames within the Thames Policy Area defined on the Proposals Map. Proposals within the Area will be expected to satisfy the development principles under Policy W1 and:
	i.	Have regard to adopted Council planning briefs, design guides and urban design guidelines including major development requirement for a Design Statement (see Policy D2);
	ii.	Develop and enhance the area's links with the river, and contribute to the completion of a continuous public riverside footpath and cycleway from Deptford to Thamesmead (Policy O16);
	iii.	Incorporate sustainable modes of passenger, freight and tourist transport as appropriate (see Policies M7, M37);
	iv.	Assist the improvement and regeneration of existing built up areas, providing new uses for old buildings; and
	v.	Protect and enhance the river and its foreshore for wildlife and nature conservation, avoid unnecessary encroachment and contribute positively to the improvement of the local environment.

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Reason

10.26

The London plan states that the Boroughs must designate a Thames Policy Area, identify detailed boundaries and prepare character appraisals of the river and its environs. The Plan details the content of the area surveys, required analysis and recommendations. The appraisals are being undertaken as part of the Thames Strategy East project. It is anticipated the final report will be published in 2007/8. The Borough’s Thames Policy Area boundaries have been defined in consultation with neighbouring Local Authorities and are in general conformity with the London Plan. Developments within the Borough’s TPA should be of a high quality design, integrated into the existing pattern of development and consider existing ecology, open spaces, transport and recreation. Encroachment into the Thames or Deptford Creek, including its banks and foreshore, should be avoided as the progressive narrowing of a river channel increases the likelihood of flooding and can destroy the essential habitats and food sources for fish, birds and other wildlife. It can also mar the visual character of the water space. The only exception to this policy will be where the applicant can demonstrate a requirement for river-dependent use such as for water-borne transport or to enable water-foreshore recreation. Waterfront locations should be viewed as opportunity sites for landmark buildings and design innovation, and this should be reflected in the choice of quality materials. Major proposals should be accompanied by a Design statement as set out in Policy D2.

Mixed Use Areas

W3	The Mixed Use Areas below, as defined on the Proposals Map, are designated for mixed-use redevelopment to include business, residential and other appropriate uses. The Council will seek an overall increase in employment generating uses and proposals that reduce the level of, or potential for, business/employment activity will be resisted. Proposals must comply with the Site Schedules, other Plan policies and, where applicable, take into account more detailed guidance in planning briefs or approved master plans.
	i.	Deptford Creekside (West Greenwich)
	ii.	Greenwich Peninsula
	iii.	Woolwich Royal Arsenal

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Reason

10.27

Mixed Use Areas have been designated to facilitate the continuing transformation to more productive uses of waterfront areas blighted by the physical, social and environmental consequences of the decline of heavy industry or port activity in the Borough. The designation seeks to capitalise on the opportunity presented by new transport infrastructure, visitor attractions including the Millennium Dome and the Firepower Museum, and the changing nature of the East London and Borough profile and economy. These areas contain many of the most significant waterfront redevelopment sites remaining in the Borough, so it is critical to ensure that they are re-used in an appropriate manner to secure the long term regeneration of the waterfront and improve the quality of life and opportunities for waterfront communities and other Borough residents.

10.28

In Mixed Use Areas, employment-generating uses (i.e. any Use Class that provides employment) will be permitted provided they comply with relevant Site Schedules and other Plan policies. Redevelopment proposals for under-used sites often seek greater intensities than those existing, with uses mixed both horizontally and vertically, sometimes including a substantial residential element. If residential elements are overly dominant, diversity and business activity can be sterilised. Accordingly, where redevelopment takes place the Council will seek to ensure that there is a significant rise in employment, including an overall increase in B-Class floorspace on sites currently or last occupied by B Class uses and not re-allocated for other uses (see Policy J5). The Council will also seek to ensure that the scale of development is commensurate with existing or proposed infrastructure, especially public transport, and that affordable housing and other community benefits are provided wherever appropriate (see Policy SC2). Upon planning permissions, conditions will be attached, or legal agreements negotiated, to ensure a development provides a balanced mixed of uses and range of employment opportunities for existing and future residents within a reasonable timeframe.

10.29

The Site Schedules,Greenwich Peninsula Development Framework (2002, being updated) and West Greenwich Development Framework (2000) provide more detailed advice on appropriate uses and other requirements for their respective areas. They seek to ensure future waterfront uses deliver the Council’s vision for a revitalised and sustainable waterfront. Masterplans that benefit from planning permission set the tone for redevelopment on Greenwich Peninsula and Woolwich Royal Arsenal.

Thamesmead

W4	The Council supports the ongoing development of Thamesmead to form a distinctive, accessible and mixed community with a good quality of life and environment, a balanced range of facilities to serve the local community, public open space and a mix of dwellings including affordable housing.

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Reason

10.30

Over the Plan period the Thamesmead development, including its residential and open space uses is likely to approach completion (see paragraph 10.22). The most significant recent scheme in Thamesmead is the Gallions Reach Urban Village, covering 55 hectares in western Thamesmead, including 2.5 km of river frontage which when complete will be home to over 3,500 residents. The last major residential area to be developed in Thamesmead will be Tripcock Point. The development will be characterised by a high quality of sustainable urban design. It will include around 2,000 homes, a primary school and public open space. Detailed guidance is provided in the Tripcock Point Development Framework (2003), adopted by the Council as Supplementary Planning Guidance.

10.31

In turn, population growth has stimulated proposals for additional commercial development within Thamesmead district centre, which has largely preceeded the completion of residential areas which will support it. Once unimplemented retail permissions are developed, Thamesmead centre will almost fully utilise its allocated area. Following guidance in PPS6 Planning for Town Centres and the London Plan, ,limited additional provision may be appropriate providing it is at a scale in keeping with Thamesmead’s role as a District Centre and the needs of its local catchment (mostly within 5 minutes drive of the centre), and does not compromise the vitality and viability of Woolwich. A modest range of neighbourhood shopping and service facilities will also be provided in the Gallions Reach Local Centre.

10.32

The extension of the Waterfront Transit to Thamesmead within the Plan period is a priority, and the Council supports the principle of the Thames Gateway Bridge, subject to further consideration and clarification of matters agreed by the Council in August 2003. Proposals for specific areas within Thamesmead are set out in the Site Schedules.

Safeguarded Wharves

W5	The Council supports the ongoing development of Thamesmead to form a distinctive, accessible and mixed community with a good quality of life and environment, a balanced range of facilities to serve the local community, public open space and a mix of dwellings including affordable housing.

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Reason

10.33

Wharf facilities are a finite resource. The movement of goods by water rather than road can help reduce traffic congestion, air and noise pollution, and is consistent with the principle of sustainable developments. The Secretary of State has issued a Direction Notice (1998, as amended 2005) affecting six wharves in Greenwich, to have regard to their maintenance for cargo use. Development proposals for all these wharves are referable to the Mayor of London, who has a duty to periodically review wharf safeguarding and make recommendations to the Secretary of State with regards to existing or possible additional safeguarding directions. The London Plan suggests the Mayor and the Boroughs identify wharves to be safeguarded against development that could preclude their future use for cargo handling. Other than in the exceptional circumstances identified in the Policy, proposals for uses other than river-based cargo handling on safeguarded wharves should be supported by an operational viability assessment of the wharf against the criteria in the London Plan. On vacant wharves temporary uses that would not preclude freight use will be considered on merit.

10.34

The policy also seeks to ensure that operations on safeguarded wharves or development adjoining sites do not unduly fetter each other. This amounts to a dual responsibility on both wharf owners/operators and occupiers/developers of adjoining land to employ the best practicable means to minimise the potential for land use conflict. Appropriate measures include enabling continued highway access to the wharf, and careful attention to the design, disposition and selection of uses, particularly along site boundaries, as well as the use of buffers and other mitigation techniques (see Policy E3).

Floating Vessels

W6	Proposals to moor temporary or permanent floating vessels on the Thames, including the use of any additional areas to service or support activities on a moored vessel, must:
	i.	Sympathetically relate to historic waterfront and riverside areas;
	ii.	Positively contribute to the River's life and scene;
	iii.	Not compromise existing or potential River transportation, nor adversely effect existing or potential wharfage operations, industrial and employment-generating activities;
	iv.	Not unduly impact on the River, its foreshore and environs through ecological disruption, pollution, noise and refuse generation; and
	v.	Not conflict with residential amenity, use of the River for tourism and recreation, nor with other policies in the Plan and other Council strategies.

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Reason

10.35

The main active River use is for passenger and freight transport, and the policy seeks to minimise or avoid conflicts between moored vessels and river traffic. The Thames is also an important recreational and amenity resource, a source of enjoyment for residents and visitors, and is integral to the setting of historic areas including the World Heritage Site at Greenwich. Historical sections of the river are not suitable for the mooring of vessels, unless they are of related historic character and do not obscure important riverside settings and historic views. In addition, the River forms a backdrop to significant areas of residential and employment activity, and proposals for moored vessels should not conflict with these established patterns of land use. Detailed guidance for floating vessels is set out in Advice Note 4 Planning Criteria for Floating Vessels.

Support facilities for water-based uses

W7	Support facilities and infrastructure required to enable the use of the River Thames, its tributaries and other waterways for passenger, transport, recreation or other river-dependent uses, will be protected and encouraged, subject to ecological considerations.

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Reason

10.36

Maintaining waterway support facilities and infrastructure is vital to sustaining uses on and adjacent to the Borough’s waterways. To promote activities such as angling and uses such as boat servicing (yards exist at Badcock’s Wharf and Cory Barge Works ), the provision of new facilities should be encouraged, subject to their impact upon flood-risk, navigation and biodiversity. The Borough’s support infrastructure includes mooring and land storage facilities, dry docks, boat hoists and cranes, piers and other landing stages, slipways, stairs and other waterway access points. Those relevant to riverbus sites are shown on the proposals maps; facilities and infrastructure generally will also be identified through the appraisals in the Thames Strategy East (final report expected 2007/8.

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