D4.4N Site, CMK Planning Brief

Transcription

1 D4.4N Site, CMK Planning Brief Adopted June 2013 (Updated March 2017)

2 D4.4N Site, CMK Planning Brief This document has been prepared by Milton Keynes Council s Urban Design and Landscape Architecture Team and internal officers. For further information please contact: Neil Sainsbury Head of Urban Design and Landscape Architecture Growth, Economy and Culture Milton Keynes Council Civic Offices 1 Saxon Gate East Milton Keynes MK9 3EJ T +44 (0) F +44 (0) E Neil.Sainsbury@Milton-keynes.gov.uk 2

3 Contents SECTION 1 INTRODUCTION 1.1 Location and Ownership Purpose of the Brief Structure of Brief 5 SECTION 4 DEVELOPMENT & DESIGN PRINCIPLES 4.1 Introduction Land Uses Design Principles 15 SECTION Development Requirements 20 PLANNING POLICY CONTEXT 2.1 The Development Plan National Policy 7 ANNEXURE A EXISTING UTILITIES Other Planning Guidance Planning Summary 8 SECTION 3 CONTEXT/SITE APPRAISAL 3.1 Introduction The Site Surrounding Area Opportunities and Constraints 14 3

4 D4.4N Site, CMK Planning Brief SECTION 1: INTRODUCTION 1.1 Location and Ownership The site extends to approximately 0.65 ha (1.6 acres) and is located within Block D4.4 of Central Milton Keynes (CMK). The site is strategically located, bounded on two sides by the primary routes of Avebury Boulevard, and Secklow Gate (see figure 1) The site is in the ownership of Milton Keynes Development Partnership* (MKDP). 1.2 Purpose of the Brief The purpose of this document is to provide planning and design guidance for the development of this site in CMK. This will aid the development process, by allowing developers to submit informed proposals that respond to Council (MKC), landowner and other local stakeholder expectations for the site, and respect the requirements of MKC planning policy The Brief has been prepared to help deliver the Council s Core Strategy The consultation process associated with the preparation of this brief is intended to give all interested parties full opportunities to set out their aspirations for the site and to identify constraints that need to be accommodated The Brief has been prepared to accord with current Planning Policy a key aim though is to contextualise the policy for the site covered by the Brief. The Brief cannot formally change current policy, however there may be material considerations that suggest variations of current policy may be appropriate. Where this is the case, the Brief will state what they are and what the preferred use and/or variation in policy is. This will be weighed against the current policy when determining a planning application for the site Once approved by Milton Keynes Council Cabinet, the guidance contained within the Brief will be a material consideration in helping determine planning applications for the site. *MKDP is a limited liability partnership set up by Milton Keynes Council to facilitate Milton Keynes s continued growth and economic success by promoting the development of land assets transferred to the council from the Homes and Communities Agency, in line with the Council s Corporate Plan and Economic Development Strategy. MKDP take a commercial and entrepreneurial approach to sell and develop these assets with third party developers and investors, whilst ensuring full community and stakeholder engagement in the preparation of development briefs for the sites. It is a requirement on the MKDP that an adopted Development Brief must be in place before they commence marketing or developing any of their larger sites. This is intended to enable the Council, following consultation with all interested parties, to set clear expectations for the nature of any future development on the site; but also to assist the MKDP in marketing the site and to give potential bidders/development partners a degree of confidence about the parameters within which they should develop their proposals. 4

5 1.3 Structure of Brief The Brief is divided into four sections: Section 1 outlines the purpose of the brief, its location and ownership and other administrative information for developers. Section 2 describes the planning policy context of the site. Section 3 provides a siite analysis of the site itself and the surrounding area. A thorough understanding of this will have an important bearing on the key design principles and parameters. Section 4 represents the Key Design and Development Principles, that should inform any development proposals. The accompanying Parameters Plan spatially illustrates the design principles. Xscape Secklow Gate Avebury Boulevard H6 Childs Way FISHERMEAD Figure 1: Site Location 5

6 D4.4N Site, CMK Planning Brief SECTION 2: PLANNING POLICY CONTEXT 2.1 The Development Plan Planning law requires that applications for planning permission be determined in accordance with the Development Plan unless material considerations dictate otherwise The Development Plan for CMK comprises the made CMK Business Neighbourhood Plan, the adopted Core Strategy and the saved policies of the Milton Keynes Local Plan. CMK Business Neighbourhood Plan The CMK Business Neighbourhood Plan was made part of the Development Plan by Full Council on 10 June Once a Neighbourhood Plan has been agreed at a referendum and is made (brought into legal force) by the local planning authority, it becomes part of the local planning authority s development plan as an official development plan document which carries statutory weight. Applications for planning permission must be determined in accordance with the development plan, unless material considerations indicate otherwise. If a policy contained in the development plan for an area conflicts with another policy in a development plan, the conflict must be resolved by the decision maker in favour of the policy which is contained in the latest document to become part of the development plan Neighbourhood Plans therefore form part of the development plan for the relevant area. They will necessarily be in general conformity with the strategic policies contained in the development plan for the area. If they are the most recent document to become part of the development plan, they will attract statutory priority and will take precedence over non-strategic development plan policies Table 4 of the Neighbourhood Plan shows the principal indicative land uses for the site are to be A1 (shops)/ A2 (financial & professional services), A3 (restaurants and cafes), C1 (hotels) and D1/D2 (non-residential institutions/ assembly and leisure) as well as a public multi-storey car park. Policy CMKAP SS4 (b) encourages the delivery of the broad land uses shown on figure 16 and in Table 4, but allows variations as long as they ensure mixed use development in line with Policy CMKAP G Other relevant policies require: Buildings facing onto Avebury Boulevard must include within these frontages a weather protected walkway (CMKAP G7) Buildings facing onto Avebury Boulevard will be expected to provide predominantly active frontages (CMKAP G7) Buildings on Boulevards are encouraged to be up to 8 storeys, although taller buildings may be acceptable subject to certain criteria (CMKAP G9) Retention of existing surface level car parking ( classic CMK infrastructure ) (CMKAP G1) New development to provide its required parking within the application site (CMKAP T4) Development to define the edge of the public realm (CMKAP G8) Mixed use development is encouraged for all development proposals (CMKAP G6) 6

7 Core Strategy The Core Strategy was adopted in July 2013 and forms part of the development plan for Milton Keynes Policy CS7 refers to the key objectives for the development of CMK including 1. Achieve higher quality buildings and spaces around them, with greater attention to human scale and more detail and variety of uses within proposals; 2. Promote a higher density of development in appropriate locations; 3. Achieve growing visitor numbers from outside the city to further enhance CMK s status as a regional and national destination for shopping, culture and leisure; 8. Improve integration between the facilities and defined quarters of the area; 10. Offer an attractive urban living environment for the residents of current and future dwellings Milton Keynes benefits from an innovative and strategic approach to open space provision and surface water management. In line with local policy contained within the Core Strategy, all new developments will be required to ensure that flood management is planned at the largest appropriate scale, providing sustainable and strategic surface water drainage as part of a network of multi-purpose open spaces. Milton Keynes Local Plan The Milton Keynes Local Plan was adopted in December The following Local Plan policies have been saved by the Secretary of State The following Local Plan Policies are relevant: Transport policies T1-T6, T10-T11, T15 D1-D2a (design), D4 (sustainable construction) CMK policies CC1-CC2 (retail development), CC5 (office development), CC7A (key transport principles), CC8 (design and layout), CC9 (design of new buildings), CC7C (key principles for parking), CC10 (planning obligations), CC13 (City Core Quarter), CC18 (Block D4) 2.2 National Policy The National Planning Policy Framework (NPPF) was published in The NPPF constitutes guidance and is a material consideration in determining planning applications. At the heart of the NPPF is a presumption in favour of sustainable development The following sections of the NPPF are of particular relevance to the development of this site: Ensuring the vitality of town centres Promoting healthy communities Requiring good design The NPPF states that local planning authorities should recognise town centres as the heart of their communities and pursue policies to support their viability and vitality As of 6 April 2015, National Planning Policy has been strengthened to make it clear that the Government s expectation is that Sustainable Drainage Systems (SuDS) will be provided in new developments. To this effect it is expected 7

8 D4.4N Site, CMK Planning Brief that, where planning applications are for major development, the Local Planning Authority must ensure that SuDS are put in place, unless demonstrated to be inappropriate Milton Keynes Council will therefore determine planning applications in accordance with national standards and local policy, whilst taking into account technical advice provided by the Lead Local Flood Authority. 2.3 Other Planning Guidance Supplementary Planning Guidance (SPG)/Documents (SPDs) The Handbook was adopted as Technical Guidance by Milton Keynes Council on 26 September Planning Summary The site is identified in the Neighbourhood Plan as a development site. Principal indicative land uses for the site are A1/A2 retail, and multistorey car park, although the Neighbourhood Plan allows for variations to these indicative land uses as long as they ensure mixed use development The following Supplementary Planning Guidance/Documents (SPG/SPDs) should be considered as material considerations when preparing any planning application for the site: Sustainable Construction SPD (2007) Parking Standards SPD (2016) New Residential Development Design Guide SPD (2012) Affordable Housing SPD (2013) Milton Keynes Drainage Strategy Development and Flood Risk SPG (2004) A suite of Supplementary Planning Documents and Guidance relating to Developer Contributions CMK Handbook for Public Realm The CMK Handbook for the Public Realm has been developed to provide guidance and set standards for the design and delivery of the public environment within Central Milton Keynes to ensure it is co-ordinated, attractive, easily understood and easy to move around. 8

9 SECTION 3: CONTEXT/SITE APPRAISAL 3.1 Introduction It is important to understand the existing site and surrounding area and their features, as this informs the layout and design principles for any redevelopment of the site. Figures 2 and 3 provide an analysis of the site and its context. 3.2 The Site The site is in a strategic location within Central Milton Keynes (CMK), with frontage onto two key routes, Avebury Boulevard and Secklow Gate. Its location means it is within easy walking distance (400m) of the central shopping area as well as Xscape The site was previously developed as a garden centre. The majority of the site is vacant rough scrub and grassland. Whilst there are no buildings on the site, there are the remains of hardstanding and structures from the site s previous use. The site is unconstrained: there is nothing that needs to be retained on the site. The site slopes gently downwards from north to south. The site currently has one existing direct access at the south east corner of the site. Beyond this direct access, the site is very accessible via Secklow Gate and Avebury Boulevard/South 10th Street. 3.3 Surrounding Area Public Realm South 10th Street is a residential street that forms the western edge of the site and is typical of the third level of streets below Gates and Boulevards in CMK. It is 6m wide and includes parallel parking bays on each side of the street. To the north, and east of the site is existing public surface level parking, with a double row to the north and two double rows to the east. The site was previously developed as a garden centre Access to the site across Secklow Gate is provided by an underpass pedestrian crossing 9

10 D4.4N Site, CMK Planning Brief N Silbury Boulevard Midsummer Boulevard Secklow Gate Avebury Boulevard Saxon Gate EXISTING BUS STOP LAND USES RESIDENTIAL LEISURE RETAIL Childs Way OFFICES CIVIC MIXED USE FISHERMEAD MULTI-STOREY CAR PARK TEMPORARY SURFACE LEVEL CAR PARK Figure 2: Surrounding Area 10

11 N Avebury Boulevard Secklow Gate 2½ 2½ storey storey South 10th Street 1½ 1½ storey storey 2 storey PEDESTRIAN ROUTE 3 storey VEHICULAR ACCESS FROM GATE/BOULEVARD VEHICULAR ACCESS TO THE SITE FRONTS OF BUILDINGS 2½ storey South Row SURFACE LEVEL CAR PARK UNDERPASS EXISTING TREES PORT COCHERE SITE BOUNDARY LAND USES RESIDENTIAL LEISURE Figure 3: Site Analysis 11

12 D4.4N Site, CMK Planning Brief Pedestrian access to the site is provided: across Secklow Gate by an underpass crossing which links the site to the Xscape development; across Avebury Boulevard via a porte-cochere route, as well as an underpass. from the south via an underpass which links the adjacent residential area of Fishermead to D4.4./ CMK. Land Uses To the west of the site, on the western side of South 10th Street, is residential development. To the north of the site, on the northern side of Avebury Boulevard, is a temporary surface level car park. Immediately to the south of the site is a Premier Inn and a public house (The Barn). To the east of the site, on the eastern side of Secklow Gate, is the Xscape ski, leisure, cinema and entertainment complex. Premier Inn and the Barn public house are located to the south of the site Existing Infrastructure The site is surrounded and served by existing surface level parking, transport access, servicing, pedestrian routes, landscaping and utilities. To the east of the site, on the other side of Secklow Gate, is the Xscape ski, leisure, cinema and entertainment complex Annexure A highlights the key utilities in proximity to the site. The site is surrounded and served by existing surface level parking 12

13 Building Heights, Setbacks and Edge Conditions The housing to the west of the site is a mixture of 1½ and 2½ storey development. The dwellings fronting South Tenth Street are 1½ storeys in height, whilst those fronting Avebury Boulevard and South Row are 2½ storeys The Premier Inn is three storeys in height. It is set back 6.5 metres from the pavement along its South Tenth Street frontage. The Barn public house is two storeys in height. The dwellings fronting South Tenth Street are 1½ storeys in height The dwellings on the opposite side of South 10th Street front the street. The Premier Inn and Barn public house back onto the southern boundary of the site. Public Transport Access On the opposite side of Avebury Boulevard to the site, there are a number of bus stops located on Lower Ninth Street and Midsummer Boulevard, which forms part of the primary public transport spine. There are also bus stops on Avebury Boulevard in front of Xscape and the Food Centre. 13

14 D4.4N Site, CMK Planning Brief 3.4 Opportunities and Constraints The preceding sections of the development The site is located adjacent to existing housing. Uses proposed for the site should not adversely affect the amenities of these properties. brief provide an appraisal of the site s existing character and context The site is within close proximity of bus stops. The site represents a prominent, strategically Planning policy supports a wide variety of land uses. important unconstrained site situated in a highly accessible location at the heart of CMK. The site s location at Avebury Boulevard s junction The south west edge of the site does not face with Secklow Gate represents a key entrance the public realm and therefore there is an point into CMK which can be exploited. opportunity for servicing, parking or the backs of future buildings to face this edge The site, which is undeveloped, has three street frontages which need to be addressed. It is The opportunities and constraints have served served by existing public realm, transport and to underpin the rationale behind the approach utilities infrastructure. and principles of this Brief and the Parameters Plan, outlined in section 4. Site lies at a key entrance point into CMK 14

15 SECTION 4: DEVELOPMENT & DESIGN PRINCIPLES 4.1 Introduction 4.3 Design Principles This section outlines the principles relevant to the design and development of the site. A Parameters Plan accompanies the principles which serves to spatially represent the key design principles. 4.2 Land Uses The Neighbourhood Plan identifies principal indicative land uses for the site as being retail, hotel and multi-storey car park. The Neighbourhood Plan allows for variations to these indicative land uses as long as they ensure mixed use development It is considered, given the adjoining housing, that residential would also be an appropriate use This approach to land use selection should also take cognisance of the significant potential for new development/refurbishment on a variety of sites directly to the north of the site. The Point, the adjacent temporary car park and the Food Centre are all located in the Primary Shopping Area (as identified in the Core Strategy) where retail-led mixed use development is encouraged. Block E.1.1 to the north of Silbury Boulevard is also a development opportunity and offers the same flexibility in terms of permissible land uses as the site The mix of land uses should take account of the need to protect the amenities of existing residential properties adjoining the site. Structure / Layout Development should follow perimeter block principles so that there is a clear public front with entrances and a clear private back. Built form should come up to the back of the existing footways along Avebury Boulevard and Secklow Gate. The layout should not result in ambiguous space that is not clearly public or private (such as alleyways) or public space that is not properly addressed. Public space should not generally be internalised to the block unless best practice urban design principles can be achieved The site forms the northern part of Block D4.4. The block has public pedestrian routes around all four sides and therefore additional public vehicular or pedestrian routes through the site or on its southern edge are not required nor advisable, unless all best practice urban design principles can be achieved. Building Lines New development should adhere to existing building lines and be located behind the existing surface level parking and public footpaths along the Avebury Boulevard and Secklow Gate frontages. Frontages All public open space and streets must be overlooked by development. In this regard care must be taken to avoid layouts and building footprints that result in blank elevations that front a public street. 15

16 D4.4N Site, CMK Planning Brief N Avebury Boulevard Key views of the site Key views of the site Secklow Gate Key views of the site South 10th Street SITE BOUNDARY BUILDING HEIGHT 2-3 STOREYS BUILDING HEIGHT 4-8 STOREYS BUILDING HEIGHTS 4-8 STOREYS (OVER 8 STOREYS PERMISSIBLE) PRIMARY ACTIVE FRONTAGE South Row SECONDARY ACTIVE FRONTAGE (DESIRABLE) ANIMATED FRONTAGE POTENTIAL BACK OF BUILDING (2 STOREYS), SERVICING OR PARKING PROPOSED KEY CORNER (WITH TALLEST ELEMENT) BUILDING ENTRANCES TO LINE UP WITH PORTES COCHERE POTENTIAL CAR PARKING & SERVICING POTENTIAL ACCESS TO BASEMENT/ SERVICING / CAR PARK PRIMARY PEDESTRIAN ACCESS TO SITE SECONDARY PEDESTRIAN ACCESS TO SITE PEDESTRIAN ROUTES TO BE RETAINED EXISTING VEHICULAR SITE ACCESS EXISTING BUILDINGS Figure 4: Parameters Plan - spatially illustrating some of the key principles 16

17 4.3.5 Because the site has three (of its four sides) facing the public realm, it is important that the development frontages, particularly at ground floor level, are carefully considered An active frontage* is to occur along the Avebury Boulevard frontage in recognition of it being on the most heavily utilised pedestrian route. While the accompanying Figure 4 identifies the location opposite the existing porte-cochere as the preferred location for the main building entrance (in line with the original design of buildings in CMK) this may not be achievable for all developments and therefore it will be acceptable to locate the main entrance to the development in alternate locations so long as they are still on the Avebury Boulevard or Secklow Gate frontage While an active frontage is desirable along the Secklow Gate frontage, an animated frontage** is a minimum to be achieved. Where / if a building frontage occurs along it, an animated frontage is also required along South 10th street, in recognition of the existing housing facing the site. Servicing must not occur off Avebury Boulevard and should be designed to be as discreet (hidden) as possible to avoid any negative impact of the building frontage onto the public realm The south facing frontage is the least important as it does not face the public realm - the back of a development could potentially face the backs of the existing Premier Inn and Barn public house In order to help animate the main pedestrian route along Avebury Boulevard, every effort should be made to locate as many smaller individual units along this frontage. If possible, this would also be desirable along the Secklow Gate frontage The development must provide a weather protected walkway within the building envelope, with a depth of at least 2 metres, along the Avebury Boulevard and Secklow Gate frontages, behind the existing footpaths. The design of weather protection features can be a light weight, high quality canopy without numerous supports, that allows for good visibility of ground floor businesses. The weather protection must be at the same level as the adopted pavement. Building Heights It is anticipated that the development s highest point will be at the corner of Avebury Boulevard and Secklow Gate and this should be treated as a key corner. The Secklow Gate frontage is set back some distance behind existing parking and therefore building heights of up to 8 storeys would be acceptable in this location. *Active frontage - A building facade that responds positively to the street and particularly at the ground floor includes uses, entrances, and windows that generate activity, which then improves surveillance of and safety on the street. **Animated frontage - A building facade that responds positively to the street and at the ground floor provides visual activity into and out of the building and potential for overlooking but with no requirement for direct access onto the street. 17

18 D4.4N Site, CMK Planning Brief Building heights along Avebury Boulevard of up to 8 storeys (but no less than 4) would also be encouraged. The southern end of this elevation should, however, respect the height of the existing residential properties and be reduced to 2-3 storeys. Because of the existing housing facing South 10th Street building heights along this elevation should be 2-3 storeys in height. Vehicular Movement There is currently one vehicular access point into the site off Secklow Gate which leads into the site via the surface level car park No other vehicular entry point into the site are encouraged or desirable. Pedestrian and Cycle Movement Pedestrian movement around the northern, western and eastern edges will occur along existing footpaths Access across Avebury Boulevard is provided via an existing underpass and a porte-cochere route. This route should be retained and entrance(s) to the new building(s) should wherever possible respond to the fixed location of the porte-cochere Provision should be made for cycle parking and, within commercial development, facilities for cyclists (changing rooms, showers, lockers etc.), in order to encourage greater cycle usage. Proposals should provide as a minimum the cycle parking standards adopted by Milton Keynes Council. Parking Car parking requirements will normally be in accordance with Milton Keynes Council s Parking Standards The developer is advised to contact the Council s Highways Development Management Team at an early stage with regard to its requirements Current policy restricts the amount of required parking provided on site as part of a development to 30%, but due to the lack of development of peripheral multi-storey car parks as well as a lack of areas within CMK to build new surface level parking, this is not viewed as a practical way forward in terms of the provision of a new development s car parking A development s parking requirement will therefore normally be provided within the development site, or where this is not possible, it will be provided elsewhere in an agreed location at the developer s expense If surface level parking is provided on the site, it should be internalised or located at the southern end adjacent to the Premier Inn. It certainly should not occupy any of the Avebury or Secklow Gate frontage as this would accentuate a car-dominated CMK Access to and the location of any parking for the development should not furthermore undermine the existing amenity of residents along South 10th Street. 18

19 If MSCPs are part of the development and are visible from the public realm, care needs to be taken to ensure that they are a piece of architecture in their own right, contributing to the overall quality of the development. Detailed Design Appearance Buildings must be of exceptional contemporary design quality, should enhance their surroundings and be constructed from high quality, durable materials. The Council s Local Plan Policy D4 and its supplementary Sustainable Construction SPD furthermore sets sustainability standards that will have to be considered as part of the overall design process Particular attention should be paid to the Avebury Boulevard and Secklow Gate frontages, which occupy key locations in terms of portraying the image of Milton Keynes as a modern, innovative and 21st century city New buildings need to be carefully integrated with the existing porte-cochere on Avebury Boulevard. This does not mean the continuation of the public pedestrian route through the site from the porte-cochere. However, there should be an entrance to the building or a facade feature that addresses this pedestrian crossing point. Landscaping There is existing street tree planting along the site s three frontages to the public realm. Any of these trees that need to be removed should be replaced. Elsewhere, the street trees will be retained, and any existing gaps filled. Safety and Security The developer must consult with the Crime Prevention Design Advisor (CPDA) at an early stage in the design process: initially, regarding design and layout and subsequently, regarding any additional physical security or community safety requirements Most importantly, the layout of the development should avoid the creation of areas of public realm that are leftover and not overlooked by any development, as they can become areas of anti-social behaviour. Furthermore, there should be no ambiguous space in terms of ownership. Public Art Integrated Parking Structure: Vizion development Any potential redevelopment should include an element of public art, in line with the Council s policy. 19

20 D4.4N Site, CMK Planning Brief 4.4 Development Requirements Servicing, Waste and Utilities The layout and design of the building(s) should accommodate requirements and access for servicing, waste storage and collection and utilities equipment Methods of dealing with, and integrating servicing, waste storage and collection should reflect the city centre location and be part of/ integrated within the building envelope, with no separate enclosures. Service yards should not dominate any elevation and should avoid altogether from occurring along the Avebury Boulevard frontage. Servicing and refuse collection should not either be located in such a way so as to impact on the amenity of residents along South 10th Street Utilities equipment - electricity sub-stations, gas governors, telecoms cabinets - should be located in accordance with the CMK Handbook for the Public Realm. Drainage Where Anglian Water requires the diversion of, or any other works to adopted sewers within the site, the developer is responsible for all works and costs incurred in meeting their requirements The sewers shall be constructed in accordance with the current edition of Sewers for Adoption irrespective of their future adoption status. 20

21 ANNEXURE A: EXISTING UTILITIES 21

22 Growth, Economy and Culture Milton Keynes Council Civic Offices 1 Saxon Gate East Milton Keynes, MK9 3EJ T +44 (0) F +44 (0) E urban.design@milton-keynes.gov.uk Available in audio, large print, braille and other languages