What’s best for Moxon Street?
Consultation and
Master Planning Report
Moxon Street | Masterplanning Report | February 2009
2
Table of Contents
1.0
1.1
1.2
Executive Summary and Introduction
Executive Summary
Introduction
2.0
2.1
2.2
2.3
Consultation Process
Process Diagram
Consultation with Key Stakeholders
Public Consultations
3.0
3.1
3.2
3.3
3.4
3.5
3.6
3.7
3.8
3.9
3.10
3.11
3.12
Context and Character of the Area
Transport Links and Community Services
Open Space Provision
Photographs of Buildings Surrounding the Site
Photographs of typical Buildings in Marylebone Area
Predominant Building Materials in the Area
Conservation Areas
Historic Massing on the Moxon Street Site
Building Heights
Street Sections
Articulation and Urban Grain
Westminster Planning Brief
Transport
4.0
4.1
4.2
4.3
4.4
4.5
4.6
Masterplan
Introduction
Site Analysis Opportunities and Constraints
Farmers’ Market Locations
Option A
Option B
Option C
5.0
5.1
5.2
Conclusions and Recommendations
Public Consultation Summary Conclusions
Recommendations
6.0
6.1
6.2
Appendices
Consultation Boards
Consultation Questionnaire
Moxon Street
Moxon Street | Masterplanning Report | February 2009
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1.0 Executive Summary and Introduction
1.1 Executive Summary
1.1 Executive Summary
• Westminster City Council (WCC) appointed Feilden Clegg Bradley Studios
(FCBS) to develop masterplanning options for the Moxon Street Car Park
site in order to provide a framework for the site to be cohesively developed in
more than one phase. FCBS also provided recommendations to WCC on the
site’s development following the masterplanning exercise and
consultation with key stakeholders and the public. This work was
commissioned in response to the Council’s proposals to build a new college
for the Westminster Adult Education Service on the southern section of the
site.
• A parallel exercise was also undertaken to consider viable locations for
the farmers’ market should it not be accommodated on the Moxon Street
Car Park site.
Process and Consultation Conclusions
• Following key stakeholder consultation and site analysis FCBS prepared
three masterplanning options for the site. Taking a design led approach the
masterplanning options presented distinct variations to building height, building mass and the provision of open space.
• FCBS consulted with the following key stakeholders
Howard De Walden Estate
The Marylebone Association
The London Farmers Market
Marylebone High Street Ward Councillors Marshall and Page
The St. Marylebone Society
The Parish of St. Mary Magdalene-in-Paddington
St. Vincent RC Primary School
St Marylebone CE School
The Portman Estate
CiT Developments
Westminster Primary Care Trust (PCT)
University of Westminster Estates Department
• The site analysis, masterplanning options, and farmers’ market
locations were presented to the public at three consultation events to gauge
the public’s view on the masterplanning options and proposed locations for
the farmers’ market.
• 110 people attended the public consultation events held at Council House.
• 77 people completed a questionnaire which asked respondents to
select a favoured development option.
27% preferred the option which provided more community uses on the ground floor with a slightly reduced development height.
(Option A)
7% preferred the option which proposed the lowest level of
development, providing neither a public space nor additional
community space. This option offered the benefit of reduced
building heights. (Option C)
66% preferred the option which proposed the greatest development height and a public square to the north. (Option B)
Indicative Elevations on Aybrook Street Option A
• Options A and B proposed the same development height and footprint for
the first phase development of the WAES college. Collectively, 93%
preferred this approach.
• The public would like to see the farmer’s market stay on site or
alternatively as close to the original site as possible. Blandford Street
appears to be the most practical on street location.
Recommendations
• Intensive public consultation, a site specific planning brief and a
masterplanning strategy provide an excellent foundation for the
cohesive development of the site. With this background work, the site
can successfully be developed in phases.
Indicative Elevations on Aybrook Street Option B
• It is recommended that the first stage of development proceed in line
with development options A and B. This will not restrict development
options for the remaining site. It is strongest in design terms and is in
keeping with the character of the historic conservation area.
• To maintain the development options on the remaining northern
section of the site the footprint of the WAES college should be
consolidated to an area approximately equal to the southern third of
the site.
Indicative Elevations on Aybrook Street Option C
Page 5 provides more summary information on the options presented.
Moxon Street | Masterplanning Report | February 2009
4
1.0 Executive Summary and Introduction
1.2 Introduction
1.2 Introduction
Westminster City Council (WCC) appointed Feilden Clegg Bradley Studios
(FCBS) to consult with key stakeholders and then prepare masterplanning
options for the Moxon Street Car Park site. This followed the Council’s
proposals to build a new adult education college for the Westminster Adult
Education Service (WAES) on the south of the site. Recognising the
important development potential of the site the consultation and
masterplanning work was commissioned in order to ensure that the site
achieves its exceptional potential in a phased development. The first phase
of development would involve the construction of the WAES College.
What’s best for
Moxon Street?
This report documents the consultation work, site analysis and
recommendations on how the site should be developed. The work was
divided into three sections; consultation with key stakeholders, site analysis
and masterplanning and recommendations for development following the
public consultation events.
Westminster City Council has lots of ideas for
the site and have commissioned Stirling Prize
winners Feilden Clegg Bradley Studios to put
together a Master plan for the site.
You’re invited to give your thoughts on our
ideas, at an open house being hosted by
our architects. You can also attend the second
open session, where we’ll show you how
these options are continuing to develop.
Come and share your thoughts on:
• Pedestrians, cyclists, cars, servicing,
public transport
Key Stakeholder Consultation
• Farmers market
FCBS met with adjacent property owners, the surrounding schools, WAES,
Ward Councillors, the London Farmer’s market and interested developers.
FCBS presented our initial views on the critical issues surrounding the site
and documented the aspirations, interests and concerns of these stakeholders. Section 2 outlines this process and summarises the important and
recurring themes raised by the stakeholders.
• Car and cycle parking
Development Options Masterplanning
• Location of retail, restaurant and
community facilities
• Westminster Adult Education Service
• Community uses needed in the area
Discuss your ideas and thoughts at:
Westminster Council House,
Taking into account key stakeholders, the ‘Moxon 97-113
Street Car Marylebone
Park Planning
Road,
Brief’ and site analysis, FCBS prepared three design led development
London NW1 5PT
options for the site. These options assess the impact of developing the site
to three different levels of density and height. Section 3 documents this
• Saturday
17th January 2009
background work. Section 4 outlines the analysis and
masterplanning
options. As part of our study FCBS also assessed the11am-4pm
implications of
maintaining the farmers’ market on site and explored alternative
• Tuesday 27th January 2009
neighbouring locations. See section 4.3.
5pm-8pm
• Street furniture, trees, pavements
and lighting
• Type of residential accomodation on
upper floors
• Servicing arrangements
• Conservation area and architecture
• Scale of development
• Open space
• Safe Streets
The following page provides a summary of the masterplanning options.
Public Consultation and Recommendations
• Anything else you think should be
considered
development of the site. Section 5.1 summarises conclusions from the
stating on for
which
day
consultation event. Section 5.2 provides our recommendations
the site’s
development.
like to attend.
To find out more, visit
www.westminster.gov.uk/business/
propertydivision
or send us your comments to
[email protected]
Please RSVP to:
[email protected]
Following three well attended public consultation events and analysis of
or call 020
7641 1713
completed questionnaires, FCBS prepared recommendations
for the
you would
Section 6.0 contains the public consultation boards and questionnaire.
Section of leaflet published by Westminster City Council announcing the public consultation events
Moxon Street | Masterplanning Report | February 2009
5
1.0 Introduction and Executive Summary
1.2 Introduction
Option A Ground Floor Plan
KEY
Non - Residential
Main Entrance
Option B Ground Floor Plan
Residential
Entrance
Service
Entrance
Entrance to
Underground Car Park
WAES
WAES
3D Aerial View. Option A Massing
Option C Ground Floor Plan
3D Aerial View. Option B Massing
WAES
3D Aerial View. Option C Massing
Moxon Street | Masterplanning Report | February 2009
6
JA NUA RY
Adjacent
Schools
WCC
Planners
Land Owners
WCC
Property
c
St Marylebone
Society
on
f key stake
on o
hol
tati
de
rs
sul
WCC
Highways
Adjacent
Schools
WCC
Planners
WCC Ward and
Members
SET UP
MEETINGS
WITH
STAKEHOLDERS
Marylebone
Association
Council House
27TH JAN
WAES
Farmers
Market
Council House
4TH Feb
Marylebone
Association
CONSULTATION
Farmers
Market
SET UP
MEETINGS
WITH
STAKEHOLDERS
Land Owners
WCC
Property
St Marylebone
Society
The diagram below outlines the anticipated timescale for the development of
the Moxon Street Car Park site. The consultation process marks the
beginning of the two phase development which is expected to start during
the second half of 2009.
During the consultation process Feilden Clegg Bradley Studios and
Westminster City Council’s Property Department, assisted by Knight Frank,
consulted with 12 different groups of key local stakeholders and held three
public consultations in the Marylebone area.
The following page summarises the key findings from consultation
with the key stakeholders.
Council House
27TH JAN
Council House
4TH Feb
WCC Ward and
Members
WAES
Process and Timescale
FEBUA RY
PREPARE MASTER PLAN REPORT
WCC
Highways
CONSULTATION
f key stake
on o
hol
tati
de
rs
sul
n
o
PREPARE MASTER PLAN REPORT
CONSULTATION
c
2.0 Consultation Process
2.1 Process and Timescale
CONSULTATION
FEBUARY
JA NUARY
The masterplanning options take into account the aspirations of the
stakeholders in balance with the requirements outlined in the ‘Moxon
Street Car Park Planning Brief’. Not all aspirations are catered for
nor are all of the Council’s requirements achievable.
The options proposed by FCBS take a design led approach and
distil the principle issues at stake. The goal is two fold. The Council
wants to gauge public opinion and to deliver a cohesively developed
site which positively contributes to the community and the architectural character of the area.
2009
June 2009
WAES College
Planning
Application
Submitted
2009
June 2009
WAES College
EndPlanning
2009
Application
Start
on Site
Submitted
WAES
College
Phase 1
2010
End 2009
Start on Site
2010
WAES
College
Phase 1
Construction
2011
2010
2010
WAES
College
WAES
Construction of first
completed
phase throughout 2010
first half of
College
first
completed 2011
of
phase throughout 2010
first half of
2011
2012
2012
2011
Council may
sell residual
Councilsite
may
from
August 2011
sell residual
onwards
site from
Farmers’ Market
continues trading
Farmers’
Market
on site until
second
phase development
continues
trading
commences
on site until second
August 2011
onwards
phase development
commences
Moxon Street | Masterplanning Report | February 2009
7
2.0 Consultation Process
2.2 Consultation with Key Stakeholders
Key Stakeholders
During the consultation process discussions were held with 12* local key
stakeholders.
Howard De Walden Estate
The Marylebone Association
The London Farmers Market
Marylebone High Street Ward Councillors Marshall and Page
The St. Marylebone Society
The Parish of St. Mary Magdalene-in-Paddington
St. Vincent RC Primary School
St Marylebone CE School
The Portman Estate
CiT Developments
Westminster Primary Care Trust (PCT)
University of Westminster Estates Department*
Representatives of the Crawford Tenants’ & Residents’ Association,
Freshwater Court Residents’ Association, Luxborough Tower Residents’
Association and York Mansions Residents’ Association were invited to a key
stakeholder consultation meeting but did not respond to the invitation.
* The University of Westminster was consulted following the public
consultation event on February 4th 2008.
Key Stakeholders Summary of Comments
Not all of the stakeholders want to see the same outcomes from the
development of the site so by their very nature some of the summary
comments below are contradictory. We have ordered the comments into
categories and provided an interpretive summary at the head of each
section. This interpretive section is intended to summarise the conclusions
that can be drawn from the views expressed.
WAES College
There is general support for building the WAES college on the southern end
of the site but with a footprint representing about a third of the site.
This support is caveated by the desire to see the Impact Assessment being
prepared by the Council demonstrating that the site is appropriate for the
provision of adult education. The Impact Assessment will be available to the
public should a planning application for the WAES college be submitted.
• There is support for the development of the WAES college to the south end
of the site to the smallest practical footprint.
• The entrance to the Adult Education College should not be on St. Vincent
Street, but on Aybrook Street.
• Interest was expressed in potentially sharing classroom facilities within the
WAES development with the adjacent schools.
• Concern was expressed that initial proposals for the development of the
college on this site had take place with inadequate consultation.
• There is support for the construction of a modern WAES College on the
Moxon street site provided that it offers adults good access to educational
opportunities.
• Some believe that adult education is not an appropriate use on this site.
• Some questioned the need for the college to have a street level presence.
• There is large scale support for development heights to be more ambitious
than the historic development especially in this central London location.
Architectural Impact of Development
Farmers Market
Stakeholders expressed the desire to see high quality architecture on the
site. Building above Georgian development heights is broadly supported.
Development heights will need, however, to be assessed on their overall
design merits and take into account the impact of development on the
surrounding buildings.
The London Farmer’s Market (LFM) would like to stay on the site or as near
to its current location as possible. The Council has committed to finding a
suitable place in the area to re-locate the farmers’ market.
• There is support for widening St. Vincent Street between Aybrook and
Cramer streets. Pedestrian priority shared surfaces that allow servicing to
existing buildings should be introduced.
• All stakeholders want to see that the site is developed to the highest level
of architectural quality.
• Stakeholders want assurance that the site can successfully be developed
in phases.
• Developers and adjacent landowners are aware of the potential impact on
daylight issues arising from the site’s development. Stepping back the
building line to the south of the site would help address this issue.
• Sunlight/Daylight assessments are to support any planning application.
• Some stakeholders expressed concern that the site should be developed
in a single phase.
Development Potential of the Site
There is a great deal of interest in the development of the site from the
surrounding property owners and developers. Developers want to ensure
that any first phase development of the WAES College robustly considers the
impact on the development potential of the remaining site.
• Development options showing the expansion of Waitrose across Cramer
Street were proposed by one developer. This required that Cramer Street
was closed with Waitrose being serviced from Aybrook Street.
• There is general support for the construction of the WAES College, but
with the caveat that development potential to the north of the site is not
restricted.
• Developers want to introduce appropriately dense development levels on
the site. This may assist in the provision of open space.
• Two stakeholders want more development options for the site to be
considered beyond those prepared by FCBS as part of the masterplanning
exercise.
• Off street servicing may have an inappropriate impact on the architectural
character of the development in the conservation area.
• The LFM would prefer to locate the farmers’ market at a dedicated open
space on site and would like to expand the market to operate on more than
one day a week.
• Using an appropriate street location for the farmers’ market is acceptable
to the LFM.
• There is support for moving the Farmers’ Market to Blandford Street if
positioned off site.
• Servicing of the market by stall holders’ vans is to be considered in
establishing a location for the market to operate. Traffic impact must be
considered.
Open Public Space
Many stakeholders expressed a desire for a new open space to be
incorporated into the designs. This desire is tempered by the financial
implications of building and maintaining a new public space. Council
assessments indicate that there is no deficiency of open space in the area.
• Stakeholders expressed a desire to have a new public space provided to
the north of the site
• Some stakeholders raised concerns that the provision of open space on
the site must consider fully all competing interests including financial
constraints. It was reiterated that the farmers’ market is a commercial
concern which the Council supports but should not subsidise.
• There is broad support for St Vincent Street being pedestrianised between
Aybrook and Cramer streets.
Moxon Street | Masterplanning Report | February 2009
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2.0 Consultation Process
2.3 Public Consultation
Public Consultations
Three open public exhibitions were held during the public consultation
process. They were hosted in close proximity to the site at Council House
on Marylebone Road. The first session was held from 6pm to 9pm on
Tuesday the 27th of January. The second and third events were held on
Wednesday the 4th of February from 11am to 4pm and from 6pm to 9pm.
Feilden Clegg Bradley Studios and representatives of Westminster City
Council’s Property Department were present during these consultations to
explain the development process and answer questions about the three
proposed master planning options presented at the event.
The information was presented on 10 boards outlining the historic
development and character of the area, the planning brief for the Moxon
Street Car Park site, alternative locations for the farmers’ market and three
massing proposals for the development of the site. A copy of the
presentation boards can be found in section 6.1 of the report. Section 6.2
contains the questionnaire.
Approximately 110 people attended the three events and 77 questionnaires
were completed. ‘The Moxon Street Consultation Summary Report’ assessed the returned questionnaires. This supporting summary report was
used by FCBS to complete this report.
The following page illustrates the themes of the 10 boards displayed at the
public consultation events.
All photos from the first public consultation, 27th January 2009
Moxon Street | Masterplanning Report | February 2009
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2.0 Consultation Process
2.3 Public Consultation Boards Summary
Process and Brief
Planning Brief Summary
Site Context , Access and Land Use
Historic Character
Typologies and Building Heights
Site Opportunities and Constraints
Farmers’ Market
Development Option A
Development Option B
Development Option C
Moxon Street | Masterplanning Report | February 2009
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3.0 Context and Character of the Area
3.1 Transport Links and Community Services
Context and Character of Area
This section outlines the context and principle characteristics of the area that
will inform the successful development of the site. The following contextual
issues are considered:
Land use and community facilities
Open space and play space provision
Character of surrounding buildings
Range of building types and spaces in area
Conservation area and cladding materials
Character of site prior to demolition
Building heights and street sections typical of area
Architectural articulation and urban grain
Moxon Street Car Park, Planning Brief
Transport
Land Use
The Marylebone High Street area is typified by mixed use development which
is effectively the model for modern redevelopment. Retail or commercial
uses activate ground floors while residential accommodation typically
occupies the upper storeys. Single use commercial and educational
buildings also sit side by side with buildings which are entirely residential. It
is this variation that makes the neighbourhood successful in land use terms.
This same mixed use approach should be applied to the Moxon Street Car
Park site.
Transport
The area has excellent public transport links. The popularity of cars,
however, means that pedestrians and cyclists are often on the defensive.
Pavements around St Vincent Street are too narrow. Properly designed
facilities for securing bicycles would support more sustainable modes of
transportation.
Access to and from Waitrose by delivery vehicles and shoppers picking up
their groceries makes Moxon and Cramer streets critical access routes which
need to be kept open. A transport statement is available on request.
Community Uses
GP Surgery*
Library
School
*NHS GPs indicated.
Private facilities not shown.
Nursery
The development of the site can support additional community uses such
as a child care facility, a GP surgery, a small library, a youth centre or artists
facility. The appropriateness of any additional community use will need to
be based on a demonstrated need and robust business plan demonstrating
viability.
Moxon Street | Masterplanning Report | February 2009
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3.0 Context and Character of the Area
3.2 Open Space Provision
Moxon Street Car Park Site
Open Space and Play Space Provision
This map indicates areas which are not adequately provided with open
space or play space. With Paddington Street Gardens immediately adjacent to the site there is excellent access to both open space and a modern
playground. Many stakeholders and the public expressed a strong desire
to see additional open space incorporated into development plans. There
are some concerns, however, about the justification and cost implications
associated with this provision.
Extract from WCC Open Space and Play Provision Access Map
Moxon Street | Masterplanning Report | February 2009
12
3.0 Context and Character of the Area
3.3 Photographs of Buildings Surrounding the Site
Surrounding Buildings
Examples of late 18th century development through to early 21st century
development surround the site. There is a very broad range of styles,
heights, typologies and uses characteristic of the area.
Buildings along Moxon Street
Aybrook Street (southern end)
Cramer Street (northern end)
Cramer Street (southern end)
Aybrook Street (northern end)
St. Vincent Street (prior to partial demolition)
Moxon Street | Masterplanning Report | February 2009
13
3.0 Context and Character of the Area
3.4 Photographs of Buildings in the Marylebone Area
Development Characteristics
A broad range of architectural styles are successful in contributing to the
area when the architecture recognises the proportion, rhythms and variation
in building heights common in the area.
A broad range of architectural styles and periods characterise the area
Mock Tudor - part of the architectural variety in the area
Characteristic Georgian Development
Architecture that fails to enhance the characteristics of the area
Small incidental spaces provide relief from the disciplined street grid
Larger scale post Georgian development is common to the area
Moxon Street | Masterplanning Report | February 2009
14
3.0 Context and Character of the Area
3.5 Predominant Building Materials in the Area
Glass / Curtain Walling
Red Brick
Natural Stone
London Stock / Yellow Brick
Rendered / Painted
Concrete
Moxon Street | Masterplanning Report | February 2009
15
3.0 Context and Character of the Area
3.6 Conservation Areas
Materials
The preceding page documents a survey of external cladding materials in the
immediate area. There is a great deal of variation with different historical
periods represented by the materials and colouration popular at the time.
Brick is overwhelmingly the predominant external cladding material.
Conservation Areas
The site sits within the Portman Estate Conservation Area and is bordered by
the Harley Street Conservation Area. The Portman Estate Conservation Area
is bounded by Marylebone Road, Oxford Street, Thayer Street, Seymour
Place and Edgware Road. It is characterised by the disciplined 18th century
street grid and planned squares. The Georgian development is typified by
the use of London stock bricks with stucco detailing. Larger scaled
Edwardian Mansion blocks have replaced much of the Georgian development to the north of the conservation area.
Georgian Development on this Site
The northern sections of the Portman Estate were initially developed with
less prestigious accommodation. Typical of that development history,
modest three and four storey buildings occupied the Moxon Street site.
There were some commercial buildings but generally the block was
residential in character. Within the residential buildings the ground floors
were occasionally used for commercial and retail activity. Unlike many of
the surrounding streets there is no evidence of significant Edwardian or 20th
century development on the site. As a result the scale of development on
the site was low and less densely developed than much of the area.
The overleaf pages provide historical photographs of the buildings on this
site prior to demolition in the mid 1960’s. These photos were used to
develop a 3D digital model to review how the historic development would
have related to the buildings currently surrounding the site. Most noticeably
the scale of the buildings to the south of the site are low relative to the larger
surrounding buildings on St Vincent and Aybrook streets.
Portman Estate Conservation Area
Harley Street Conservation Area
Moxon Street | Masterplanning Report | February 2009
16
3.0 Context and Character of the Area
3.7 Historic Massing on the Site
Computer Model of site prior to demolition showing the late 18th century/early 19th century development in the current context
Moxon Street | Masterplanning Report | February 2009
17
3.0 Context and Character of the Area
3.7 Historic Massing on the Site
Aybrook Street looking south
Aerial Photograph of the Site, 1960s
Cramer Street looking north
21-31 Cramer Street
Aybrook / St. Vincent Street
Cramer Street looking south
Moxon Street | Masterplanning Report | February 2009