Crystal Palace Park Planning Framework A draft for consultation October 2005 Contents 1: Introduction 4 2: Park context 9 3: Planning policy and legal issues 20 4: Framework principles 31 5: Vision for rejuvenation 40 6: Park proposals 43 7: Implementation 62 8: Appendices 66 Appendix 1 Crystal Palace – Key dates and historical events 67 Appendix 2 National, Regional and Local Policy context 68 Appendix 3 Consents that may be required 78 Getty CRYSTAL PALACE PARK PLANNING FRAMEWORK Foreword This draft planning framework setting out our ambitious plans for the renewal and rejuvenation of Crystal Palace Park is a significant step forward. Originally created as a setting for the Crystal Palace itself, the Park is now synonymous with sport, although parts of its great heritage are still visible. Reviving and renewing Crystal Palace Park will bring benefits to local people, to south Londoners more widely, and to London as a whole. Publishing these plans is a further step in making Crystal Palace Park a catalyst for the regeneration of south London. This framework shows how the Park can be reconnected with its surroundings and local communities, how we can bring improved and expanded transport links, better interpretation and educational opportunities, and improved facilities as a whole. The framework describes proposals for a stunning new sports centre and shows how these proposals will allow us to return to parkland large areas currently occupied by buildings and car parks. Above all this vision for Crystal Palace shows how we can make the Park safe and enjoyable for all. This document has been produced in partnership with users of the Park and its facilities, including the London Borough of Bromley and Sport England. The preparation of this framework involved broadly based local consultation. This consultation has helped develop a vision that reflects widely held aspirations for the future of this unique London asset. Continued partnership working will be essential to the delivery of these proposals over the coming years. Together we can make Crystal Palace Park once again a destination for Londoners and visitors alike. I look forward to hearing the results of this consultation. I will continue to work with a range partners over the coming months to help turn these proposals into reality. Ken Livingstone Mayor of London CRYSTAL PALACE PARK PLANNING FRAMEWORK A new vision A stunning new sports centre, more and well maintained traditional parkland, a park open and accessible from surrounding neighbourhoods, and the integration of the historical and the contemporary. This is our vision for the renewal of Crystal Palace. Our vision is for repair and rejuvenation, creating a revived metropolitan park of the twenty-first century, which meets the needs of local people, sportspeople, and the public at large and provides a valued leisure, educational and recreational resource. Set on the highest ridge in London, the Crystal Palace, from which the Park derives its name, was known as the ‘People’s Palace’ – a symbol of science, technological achievement and wonderment although it was destroyed by fire in 1936. The Park has experienced changing fortunes and today is a shadow of its former self. Now, we have the opportunity to rejuvenate the Park, to create a People’s Park’ which embraces not only those themes of nature, education and culture pioneered by its great Victorian founder, Joseph Paxton, but also leisure, sports and sustainability. This planning framework shows how we can expand the area of parkland to create a green core, which supports a range of activities within the Park, activities that will vary throughout the day and evening. It also shows how we can better connect the Park with its surroundings by creating clearer ‘gateways’ which activate the edges. Retaining the structure offered by Paxton’s striking east west axis, our vision concentrates sport, educational and leisure infrastructure on the south side of the axis around the existing athletics stadium allowing a broad swathe of rejuvenated parkland – a restored English landscape – to wrap around them. At either end of the axis – a dramatic ridge to the west on Crystal Palace Parade and a leafy gateway to Penge at the east – are opportunities to link the Park more effectively with surrounding communities. Access to the Park is critical. Through a series of new or reinforced ‘gateways’, the Park is reconnected with its surroundings. An improved main park entrance from Anerley Hill near the station will provide a prominent arrival point with interpretational information on the Park and a convenient interchange for bus and rail services. A new broad and circular ‘ride’ reinterprets the old racing circuit and provides an elegant way to get around the Park and visit its sporting, educational, leisure and recreational facilities. The top of the Park is a critical element in the vision, providing a major viewing area for the Park and panorama beyond, an emerging ecological area, gardens and the opportunity for an attraction, perhaps linked to the view. To the south west, a new gateway at the Upper Norwood Triangle would provide a dramatic opportunity to interlock the Park with the existing urban centre and create a stronger new entrance for visitors. Below this area, the vision proposes a rejuvenation of Paxton’s terraces, creating gardens and promenades, and a location for events. The current concert bowl will be remodelled to provide an improved facility for outdoor concerts and events. In the south east (the Anerley and Penge sides of the Park), the existing dinosaur area is enhanced with new interpretation facilities, a new café with a new nursery /crèche and a boating centre. In short, our vision seeks to consolidate the opportunities afforded by the magnificent landscape and history of Crystal Palace to create a truly twenty-first century park with excellent sports, educational, recreational and leisure facilities for local people and to once again make Crystal Palace a destination for London as a whole. CRYSTAL PALACE PARK PLANNING FRAMEWORK 1: Introduction CRYSTAL PALACE PARK PLANNING FRAMEWORK 1.1 Background 1.1.1 Crystal Palace Park, the National Sports Centre (NSC) and their surroundings offer some of the most challenging and exciting opportunities in Greater London. The area is of both local and strategic importance with the potential to provide significant benefits at a regional as well as a local level. 1.1.2 In its heyday, Crystal Palace was an exemplar – an extraordinary building with contents showing the latest technological advances in science and engineering set in a dramatic and inspiring landscape. Today, Crystal Palace Park is showing signs of significant deterioration in terms of the historic Park and structures and the buildings within the Park. 1.1.3 One of the key buildings in the Park is the Crystal Palace National Sports Centre. In 2003, Sport England decided to close the NSC since they could no longer maintain the increasing subsidy necessary to keep the facility open. The London Development Agency (LDA), the Mayor’s agency for economic development, recognised the value of the NSC as an asset for London and for sport. It also recognised the importance and vulnerability of the Park as a whole. 1.1.4 The LDA is committed to promoting the regeneration of this part of south London through improvements to the sporting, recreational and educational offer of Crystal Palace Park. It is anticipated that this will provide a catalyst to the wider regeneration of the area. 1.1.5 Following negotiations between the LDA, the London Borough of Bromley (LBB) and Sport England, the LDA will take over the lease of the NSC in March 2006 and has an option to take over the rest of Crystal Palace Park by 2009. 1 1.2 The need for a planning framework 1.2.1 This Framework document outlines the LDA's vision for Crystal Palace Park and the NSC in order to provide guidance on proposals by setting down clear principles against which those proposals will be assessed. 1.2.2 The Framework is not intended to be a prescriptive document. It sets out broad principles which aim to ensure future proposals maintain high standards in terms of quality and design and that new initiatives are properly integrated within Crystal Palace Park with an overall aim of rejuvenating and promoting the regeneration of Crystal Palace Park and its surroundings. 1.2.3 The Framework therefore seeks to: ¦ set out a vision for the improvement of Crystal Palace Park and the sporting facilities within it including addressing the future of the NSC ¦ identify the options for regeneration and rejuvenation of Crystal Palace Park by setting out the sustainable principles within which these options will be assessed ¦ support the design and quality of future proposals ¦ inspire and guide future improvement proposals stimulating investment and regeneration in the area. CRYSTAL PALACE PARK PLANNING FRAMEWORK 5 1 West Norwood Cemetery Dulwich Wood Sydenham Mayow Park Wells Park Southwark Lewisham Sydenham Stn 1.3 Framework area 1.3.1 The area covered by this Framework is Crystal Palace Park (the Park) bounded by Crystal Palace Parade to the west, Anerley Hill to the south, Crystal Palace Park Road to the north and Thicket Road to the east. 1.3.2 The Park is located on the north west corner of the London Borough of Bromley located close to the boundary of four other London Boroughs: Lambeth, Southwark, Lewisham and Croydon. It is just under 200 acres (80 hectares) in area. 1.3.3 The Framework also considers the immediate locality of the Park, particularly at key access points (Gateways) into and out of the Park and the connections to rail stations and local centres. 1.4 Status 1.4.1 The Framework is a non-statutory planning document, which will not be formally adopted by the London Borough of Bromley but will be subject to extensive consultation. 1.4.2 This document should be read in conjunction with the policies contained in the London Plan and the London Borough of Bromley Unitary Development Plan (UDP) and any future development proposals for the Park will need to be assessed against both the principles set out in this document as well as Regional and National Planning Guidance, the UDP, and relevant Supplementary Planning Guidance. 1.5 Consultation – support for change Rockhills Gate Norwood Park Gypsy Hill Stn Lambeth 1.5.1 The London Development Agency and its partners have undertaken extensive Sydenham Gate Alexandra Rec Ground consultation with the wider community and a large number of stakeholders in order to Crystal Palace Park Norwood Gate influence and improve proposals for the Park and sports facilities. Convent Wood Station Gate Penge Gate Penge East Stn Upper Norwood Crystal Palace Stn The dialogue process Rec Ground Bromley 1.5.2 Regular meetings of the Crystal Palace Dialogue began in early 2003, with funding Westow Park Croydon from London boroughs and local community organisations. The dialogue group has a Stambourne Woods Anerley Stn membership of nearly 250 local and national organisations and community members with an The Lawns Orchard School interest in the Park and the National Sports Centre. Beaulieu Heights Sports Centre CRYSTAL PALACE PARK PLANNING FRAMEWORK 6 1.5.3 It has also continued to use independent facilitation and has aimed to maintain transparency and fairness, and to give a voice to all the significant interest groups. Membership is still open to any relevant organisations or opinion groups not already represented. 1.5.4 Full meetings are held about three times a year and are currently attended by 50 – 100 participants (but reported to all members of the dialogue). Between these, various sub groups have been set up for more detailed work and these report back to the main group – but they cannot make substantive decisions on its behalf. Frequent checks with main group members have confirmed that the great majority believe the dialogue process to be worthwhile, and certainly preferable to the deadlock that preceded it. 1.5.5 Since the LDA became fully involved in March 2004, it has been funding the dialogue process as a major element in its ongoing consultation with the main stakeholder groups (including the general public). In particular, the dialogue has been informing the LDA’s decision making on: ¦ the future of the sports centre ¦ the future of the rest of the Park ¦ governance and management issues 1.5.6 In February 2005 a small Task Group was set up within the dialogue process to work more closely with the LDA to develop a range of proposals and options for the Park. These were based on the outcome of the autumn 2004 consultation and were intended to reflect as many as possible of the known range of needs and aspirations. The Task Group has contributed substantially to the development of this framework. 1.5.7 The LDA’s intention is to continue the dialogue process in the search for solutions that all parties can agree to. A new future – first round of consultation 1.5.8 In September 2004, an interactive public exhibition was held by the LDA as part of the on-going consultation process. The exhibition, to which dialogue members had considerable input, showed some of the possibilities for the future of Crystal Palace Park and the NSC. In all, 2,500 people visited the exhibition and 6000 individual comments were received. The event and the analysis of the results were managed at arm’s length from the LDA by the dialogue facilitator. Key findings, published in December 2004, included the following. ¦ There is a very keen interest in the future of Crystal Palace Park. ¦ The Park is valued for a variety of reasons, including tranquil open space and wildlife, family facilities, sports (for local people and others), heritage value and possibly public attractions on a wider scale. ¦ There is real dissatisfaction with the current state of the Park and in general terms there is strong support for major investment. ¦ Views about the future of the hilltop area are very mixed, ranging from “leave it open” (or even wild) to “go for a major development”. ¦ There is an appreciation of the financial hurdles to be faced in improving the Park. However, it is clear that “rampant commercialism” would be very unpopular. ¦ The great majority wish to see sports facilities remain in the Park, for local people as well as regional or national users. There is majority support for large-scale investment in new sports facilities by the stadium. ¦ Many believe that an independent trust would be the most appropriate vehicle for future park management. Additional community engagement 1.5.9 Additional community engagement has also taken place to ensure a wide range of views are represented and fed into this document. This has involved targeting a number of different sections of the community not necessarily represented through the main dialogue process and the use of other methods and techniques to gather opinion. 1 CRYSTAL PALACE PARK PLANNING FRAMEWORK 7 1 1.5.10 Local housing estates: Presentations and meetings took place with residents of the following estates around the Park: ¦ Kingswood ¦ Central Hill & Gipsy Hill ¦ Sydenham Hill & Hill Crescent ¦ Anerley Hill & Groves Estate 1.5.11 Young people and schools: Letters were sent to all of the secondary schools in the local area to ask how they would like to be involved and to raise awareness about the project. This work is currently ongoing and local primary and secondary schools will be contacted as part of the consultation for this document. 1.5.12 Local youth groups and clubs in the five boroughs around the Park were also contacted. Ultimately a session with the Streetwise Youth Group in Bromley took place where over 30 young people took the opportunity to have their say using a variety of techniques and methods including video and music. This work is currently on-going and it is hoped to continue an on-going dialogue. 1.5.13 Views on the Park from local young people were also collected informally by the young person’s representative as part of the Task Group. 1.5.14 Events in the Park: A number of events were attended in order to raise awareness about the project and to encourage the wider public to have their say about the Park. These included the London Youth Games and the Victorian weekend. 1.5.15 Internet: A dedicated website www.crystalpalacepark.org hosted on the LDA website was set up in 2004. As well as up to date information on the Park, an on-line form is also available to allow people the opportunity to have comment on the proposals going forward. 1.5.16 Postcards: Around 3000 postcards asking people to ‘have their say’ on the Park through our website were distributed throughout the local area and at the events above. The purpose of the postcards was to raise awareness of the project and give the wider community an opportunity to give their views. 1.6 Structure of the Framework The remainder of this document is divided into the following chapters: Chapter 2 Describes the context and existing site conditions including historical context, sporting, landscape. Chapter 3 Outlines the planning policy requirements and legal site constraints. Chapter 4 Sets out the core principles which underpin the approach to rejuvenating the Park. Chapter 5 Outlines the vision. Chapter 6 Sets out the vision for the Park in the context of the Park proposals for Park areas and Gateway sites. Chapter 7 Sets out the issues and approach to implementing the vision. Appendices Appendix 1: Crystal Palace – Key dates and historical events. Appendix 2: National, Regional and Local Policy context. Appendix 3: Consents that may may be required. CRYSTAL PALACE PARK PLANNING FRAMEWORK 8 2: The Park context CRYSTAL PALACE PARK PLANNING FRAMEWORK 2 1764 1852 1914 2005 CRYSTAL PALACE PARK PLANNING FRAMEWORK 10 2.1 Introduction 2.1.1 Future improvement options and proposals for the Park must be considered within the historical context and existing site constraints. This chapter reviews the historical and existing conditions of the Park to identify its strengths and weaknesses within which the Framework principles can be developed and the improvement proposals formulated. 2.2 Paxton's Park and the historical context 2.2.1 The Park was created in 1854, when Joseph Paxton's Crystal Palace was re-located there, following its original construction for the Great Exhibition of 1851. It was at that time an international wonder, showcasing the latest technology and the ingenuity of its designer, Joseph Paxton and containing art and architectural pieces from ancient Egypt to the Renaissance period. 2.2.2 The Palace’s relocation from Hyde Park made this area south London's major cultural and entertainment centre, sparking a flurry of development with new transport connections, jobs, housing and churches being built. The vast new Palace dominated the tree-lined ridge and was visible from all over London and beyond, becoming a popular venue for meetings, concerts and circuses. 2.2.3 Paxton’s vision for the Park was probably influenced by the ornate eighteenth century grandeur of Versailles, and he located the Palace on the ridge for maximum visibility. From the highest point and on a clear day, views as far as the Dartford Crossing, Keston Ridge and the North Downs can be seen. Bust of Joseph Paxton Crystal Palace in 1900 After the fire, 1936 The Park from the air, 1956 2.2.4 Outside the Palace, the Park spread downhill to the southeast with gravity-powered water fountains, with Paxton using the 60 metre slope to great effect, although it was always Paxton's intention to create a more a spectacular series of fountains and water features. 2.2.5 The slope also enabled a number of parkland character areas to be developed including the wooded English Landscape Garden and intermediate reservoir; Paxton's own house and greenhouses next to the upper reservoir; the mid level formal Italianate terraces; the lower cricket field and surrounding woodland; the lower tidal lake and geological displays, and the central basin and cascades. 2.2.6 Paxton created a strong symmetrical design for the landscape through the Grand Centre Walk with the maze and rosary gardens, cascades, fountains and basins on either side. This single landscaped area built around a central ‘axis’ terminated on the central part of the Palace building and on Penge Gate. The vision was one of Victorian grandeur and innovation. 2.2.7 Life size model dinosaurs were also included as part of an educational landscape and for more than 80 years, the Palace and its park provided a focus and identity for the area that took its name. 2.2.8 The Palace was destroyed by fire in 1936 and during World War II, the Park deteriorated as the hilltop site was used as a dump for bombsite rubble. In the 1960's, the NSC was constructed as part of a larger masterplan by Sir Gerald Barry, commissioned by the London County Council. However, the NSC was the only part of this masterplan realised and consequently, does not fit well with the rest of the Park. CRYSTAL PALACE PARK PLANNING FRAMEWORK 11 2 2 2.2.9 In terms of sporting facilities and the historical context of the Park, from early times the Park was associated with sporting activity, with an archery ground forming part of the original Park scheme and a cricket ground developed in 1857. 2.2.10 Cycling, polo and football saw prominence in the 1890’s, with the FA Cup final being held on the sports ground in the Park from 1895 to 1914. A motor racing circuit was laid out in the 1920’s making use of the natural contours of the Park. With a break in the 30’s and 40’s, this continued as an activity in the Park until 1972 with famous names in motor racing such as Stirling Moss and James Hunt seeing action on the track. 2.2.11 The NSC and Athletics Stadium were planned in the 1950s and completed in 1964. The modern ‘sports park’ concept design was the first of its kind in the UK and the multi-use nature of the site is still unique in London. 2.2.12 The key historical dates in the evolution of the Park are set out in Appendix 1. The following parts of this chapter look at the Park as it is today both in terms of key access points (the Gateway sites) and areas within the Park. An FA Cup Final at Crystal Palace NSC shortly after completion CRYSTAL PALACE PARK PLANNING FRAMEWORK 12 2.3 The Gateway sites 2.3.1 Before turning to look at the Park today in terms of areas within the Park, it is first worth looking at the key access points into and out of the Park as these are important in terms of accessibility to and from the Park, integration with the Park's surrounding areas and connectivity within the Park. The Gateways are the key entry points from which the Park is accessed by foot, bicycle and car. 2.3.2 The busiest entrances to the Park are generally Crystal Palace Station and the main access road off Anerley Hill and the Penge entrance at the eastern end of the Park, although this varies during the day and when events are being held at the Park. The Upper Norwood ‘Triangle’ entrance, which is in close proximity to the bus terminus, can attract users, although these generally visit the gardens because there is no obvious route into the wider park. 2.3.3 Other vehicle entry points exist at Rockhills, Sydenham Gate and Fisherman’s Gate and at the South Terrace gates, used for car park overspill access for large events. There are further pedestrian access points at Westwood Gate, Vale Gate, Wicket Gate and Anerley Gate. Crystal Palace Station 2.3.4 The experience of arrival is dominated by an existing deep cutting surrounded by vegetation and trees which are poorly managed. The station is set back and at a tangent to the main road and entry towards the Park is not immediately apparent. Connections from the railway station to the Park are visually poor and pedestrian crossings at this point are difficult and unsafe and involve level changes up over the main road to the NSC. 2.3.5 The station area is the main arrival point for the Park but is dominated by event related infrastructure such as walkways, gates, fences and a large access road for vehicles. It is cluttered and presents an unremarkable arrival experience for visitors. The rail tracks leading south east from the station also form a physical boundary to the Park from this direction and delineate the edge of the Park for almost half a kilometre. 2 C RY S TA L PA L A C E P A R K P L A N N I N G F R A M E W O R K 13 2.3.6 The main vehicular entrance into the Park is accessed from Anerley Hill which in turn feeds an array of roads dividing the Park into small pockets of land. Between Thicket Road and the vehicle access to the NSC and approximately 700 metres in length, the Park edge is concealed behind buildings with no clear access points or landmarks to indicate its presence. Penge entrance 2.3.7 Pedestrians entering through the Penge entrance approach along a narrow pathway through a car park containing sub-station buildings before progressing onto Grand Centre Walk which is formed by an attractive boulevard of mature trees. 2.3.8 The existing public facilities including the information centre, toilets and café buildings are spread out to each side of the avenue and offer a low quality built experience. Progressing onwards, the journey is interrupted by the concrete podium structure of the NSC which tends to be a physical and psychological barrier to access the upper Park areas. 2.3.9 However, the section of the Park along Thicket Road is well defined on both sides of the road which creates a quality edge to the Park with excellent views of the Dinosaur Park and lower lakes from the road and properties opposite. Upper Norwood ‘Triangle’ (Boundaries Gate) 2.3.10 There is no obvious entrance or route into and through the Park for those entering from Upper Norwood town centre and the bus station. The layover area for the buses adds to the barrier effect at this point, as does the fact that Crystal Palace Parade is a wide, busy road with few pedestrian crossings. 2.3.11 As a result, pedestrians from these areas filter into the Park from a number of entry points from Crystal Palace Parade or down Anerley Hill. 2.3.12 The remnants of the access road from the previous breakers yard form the main pedestrian route into the Park for those approaching from Crystal Palace Parade. Security for those using this remote access route is considered to be a problem. Rockhills entrance 2.3.13 Public entry to this entrance is not encouraged at present and is only achieved informally from the vehicular access road serving the caravan site and the BBC transmission buildings. 2.3.14 Beyond, however, there are specific openings between the private properties along Crystal Palace Park Road and this section of the Park has a clear character with predominantly residential villas and mature tree planting along the road, with the Park behind. Sydenham entrance 2.3.15 This entrance is characterised by a gravelled car park primarily serving the Old Cricket Pitch and the eastern end of the Park. The entrance is fairly low key. 2.3.16 Overall, therefore, the Park is poorly integrated with its surroundings, both visually and physically, along much of the perimeter and at the Gateway sites. As a result, there are barriers to entering the Park for both cars and pedestrians. Primary Vehicular Circulation Route Vehicular and Pedestrian Entrance Pedestrian Entrance Westwood Gate Fishermans Gate Vale Gate Sydenham Gate Penge Entrance Wicket Gate Anerley Gate Cintra Gate South Terrace Gates Boundaries Gate Rockhills Crystal Palace Railway Station Penge West Railway Station Caravan Club Site Covered Reservoir BBC Transmitter Former Site of the Crystal Palace Bus Station South Tower Base and Crystal Palace Museum Italian Terrace Concert Bowl Intermediate Lake (fishing) Maze Hostel National Sports Centre Stadium Cars Cars Cars Cars Farm Dinosaurs Tidal Lake Café Information Toilets Toilets Children’s Playground Cricket Pitch Grand Centre Walk 2 2.4 The Park areas 2.4.1 The Park as it currently exists, can be divided into six main areas, each of which has a different character, focus and role to play within the Park. A brief summary of these areas is provided below an a plan showing them can be seen on page 44. 2.4.2 These areas have also been used as the starting point for various improvement options within the Park and the LDA's proposals set out in Chapter 6 (pages 43-61). Area One – The NSC and Athletics Stadium 2.4.3 The NSC and Athletics Stadium with associated car parking are situated in the centre of the Park on the areas that were originally the north and south basin of Paxton’s Plan. 2.4.4 The Athletics Stadium has a current capacity of 16,500 seats and has a range of ancillary facilities including 1700m2 of offices under the Jubilee Stand together with a sports injury clinic and children’s mini gym. The Stadium is currently the only venue in London which can be utilised for AAF Grand Prix standard athletics. The running track was recently refurbished which enabled the hosting of the most recent Grand Prix athletics event in 2005. This area also includes Crystal Palace Station which is the main arrival point for the Park. NSC and Athletics Stadium The Lower Lakes Area Two – The Lower Lakes 2.4.5 The lower area of the Park including the recently renovated dinosaur area, the playing fields and lower lake area, contains the major educational elements of the Park. Area Three – The Old Cricket Pitch 2.4.6 The Old Cricket Pitch in the north eastern corner of the Park is still used as such and is bounded predominantly by trees and greenery. It is perhaps the most established part of the Park. Area Four – The English Landscape 2.4.7 The English Landscape wraps around the northern part of the Park with significant tree cover, meandering paths, and includes the intermediate lake, known also as the fishing lake, and the maze. It also includes the concert bowl and the more recent steel concert platform. There has been a long history of summer performances although the limitations of the facilities have resulted in a decline of this use. 2.4.8 This area also incorporates Rockhills Caravan site which is fenced off from the rest of the Park. The Old Cricket Pitch The English Landscape CRYSTAL PALACE PARK PLANNING FRAMEWORK 14 Area Five – The Hilltop 2.4.9 The Hilltop at the western edge of the Park where Paxton's original Crystal Palace was constructed, is disappointing despite of the potential offered by the views. It contains the archaeology of the Palace, a significant amount of wartime bomb debris, seventy years of self seeded scrub and woodland with some existing mature plane and lime trees and a paved garden laid out in the 1980’s. The listed subway was recently restored, although access remains restricted, and as such, is an unused resource below Crystal Palace Parade. 2.4.10 The Hilltop is also the location for the BBC transmitter mast,which is visible across large parts of London, and also the underground reservoir. Area Six – The Upper and Lower Terraces 2.4.11 The Upper and Lower Terraces designed by Paxton in the nineteenth century sit directly to the east of the Hilltop and are an impressive reminder of the ambition of Paxton’s plan. They are overgrown and degrading badly, even though some consolidation work was carried out in the 1980’s. Parts are currently fenced off for safety reasons. The Terraces are also now used for overspill car parking when major sporting fixtures and other events take place within the Park. The Hilltop Upper and Lower Terraces 2.5 Park characteristics 2.5.1 The LDA has undertaken several surveys in order to establish the existing condition of the Park in terms of landscape, built development, accessibility and movement around the Park, ecology and biodiversity. These surveys included a digital survey of the Park, a survey of nesting birds, an archaeological survey, an eco-survey and surveys relating to traffic and movement of people in and around the Park areas. Landscape 2.5.2 Since Paxton's original vision as a formal landscaped setting for his Crystal Palace, the landscape of the Park has undergone many changes and most of the original features no longer exist. 2.5.3 What remains of the original Crystal Palace, including the Terraces and the sphinxes, can be found at the top end of the Park. The remains of the Terraces, the walkways, statuary and balustrades are among the most neglected and damaged areas of the Park. Some of the stairways have collapsed (and are cordoned off for reasons of public safety) and the paired sphinx statues are in need of significant repair. The magnificent grand staircase is also in need of repair and improvement. 2.5.4 Only a small part of Paxton's water display remains; the large fountains were decommissioned within 30 years of completion and were filled in and replaced by the NSC and Athletics Stadium. Paxton's original layout of the Park as a single landscaped area built around a central axis has, therefore, been seriously impaired by the NSC built directly across it and effectively dividing the Park in two. 2.5.5 These sporting facilities also introduced a substantial amount of built form and associated traffic into the centre of the Park with the concrete structure of the NSC podium creating a dominant feature. 2.5.6 The wider landscape design, moving from finer grain planting to surrounding parkland, has also been significantly affected by the building of the NSC and Athletics Stadium in the centre of the Park. With the exception of a few mature trees, very little survives of Paxton’s original planting. 2.5.7 A survey of trees undertaken in 1996, showed that 65% were either 'good' or 'very good' and should be retained. The mature trees are an essential part of the Park’s character and create a vital habitat for wildlife. Many of these trees are in the 2 CRYSTAL PALACE PARK PLANNING FRAMEWORK 15 2 English Landscape area and the playing fields and around the lakes. However, 40% were over 100 years old, highlighting the need to replenish the stock for future generations. Ecology 2.5.8 An eco-survey was undertaken in 1996 and reviewed in 2004. This found a wide range of habitats that are conducive to colonies of amphibians, reptiles, insects, birds and mammals. High value areas such as woodland and wasteland habitats lie close to one another and the resulting diversity of both flora and fauna is particularly rich and intense. Additionally, a more recent ecology study has been undertaken in 2005, the results of which will be published shortly. 2.5.9 Although much of the landscape is short mown amenity grassland of limited interest for wildlife, there are areas of more interest such as the less intensively managed grassland that include a wide variety of herb species typical of dry and in some places acid soils; a diversity of tree species, in particular the significant oaks; less intensively managed areas on the edge of the Park that form habitats resembling mixed woodland; associated scrub; and the lakes and water bodies. 2.5.10 The Park contains over 230 species of plant, the vast majority being common, although there is one species that is relatively rare in this context – a broad leaved helleborine, Epipactis helleborine. 2.5.11 There were 42 species of bird recorded in spring 2005 throughout the Park, and four species of bat have been recorded. The Park has potential as a major foraging resource. 2.5.12 An amphibious survey will also be carried out in spring of 2006. Invertebrates are presently under recorded, and it is likely that the Park with its old trees, water bodies and its bare sandy areas supports some important populations. Built context 2.5.13 Although largely open space, the Park has a significant built context with a wide range of buildings and structures both within and on the edge of the Park. Part of the Park including the NSC and stadium is designated as a Major Developed Site (MDS) in the emerging Bromley UDP as discussed in more detail in Chapter 3 and covers 16.8 hectares (42 acres). 2.5.14 The quality and features of the built context of the Park reflect the different historical, urban design, engineering and architectural characteristics which have developed over time. As a result, there are a number of listed and locally listed buildings, as well as some remnants of the original Paxton 1854 landscape including the dinosaurs, monumental terraces, staircases and sculptures. CRYSTAL PALACE PARK PLANNING FRAMEWORK 16 2.5.15 The listed buildings within the Park are: ¦ the NSC (indoor arena and swimming pool building) in the centre of the Park is listed Grade II* ¦ models of 27 prehistoric dinosaurs around the islands of the Lower Lake Area, are listed Grade II. They have been recently restored ¦ a marble bust of Sir Joseph Paxton in the central walkway of the NSC is listed Grade II ¦ a pair of cast iron gate piers to Rockhills, off Crystal Palace Parade where Paxton once lived, are listed Grade II ¦ the Upper and Lower Terraces are Grade II listed ¦ the pedestrian subway under Crystal Palace Parade leading to the now demolished high level station, is listed Grade II. 2.5.16 Crystal Palace Railway Station is also listed Grade II but is on the southern edge outside the Park boundary. 2.5.17 Since the destruction of the Palace by fire in 1936, perhaps the most notable built element of the Park is the NSC and Athletics Stadium comprising an indoor arena and swimming pool and sports stadium. The effect of its listed status in terms of the proposals for the Park is discussed further in Chapter 3. 2.5.18 The NSC and Athletics Stadium was completed in the 1960s and was part of a larger masterplan for the Park, which included a National Exhibition Centre that was never built. 2.5.19 The NSC was conceived in the 1950’s, by the London County Council (LCC) Architects’ Department under Leslie Martin, and built almost 10 years later to a revised design by Martin’s successor at the LCC, Hubert Bennett. The NSC covers 42 acres (14 hectares) and has served as the headquarters for British Athletics and other Olympic sports since the 1960s. 2.5.20 The raised concrete walkway linking the NSC to the car park areas was originally designed to enable access to the indoor arena and swimming pool building at first floor level as well as bridging across the motor racing track to the east. However, currently this access is only used for major events with the main access being at basement level. 2.5.21 Athletes generally make use of the facilities in the NSC and Athletics Stadium but also make use of the Park as an exercise area. There is overnight accommodation for athletes and visitors provided at the Lodge, a high rise building of 12 storeys which sits behind the NSC, along with flats and houses for longer stays. 2.5.22 While the NSC has earned national recognition both as a centre for sporting excellence as well as a popular community facility, there are significant problems with the building in the context of today's standard for current sporting facilities. Right: (top) The 1950’s Masterplan for the Park (centre) The raised concrete walkway (bottom) The NSC complex 2 CRYSTAL PALACE PARK PLANNING FRAMEWORK 17 2 18 C RY S TA L PA L A C E P A R K P L A N N I N G F R A M E W O R K 2.5.23 The problems identified with the existing indoor arena of the NSC are: ¦ lack of environmental separation between the wet and dry sports areas. This arrangement of interlinked spaces creates problems of noise transference between the two areas, and “the heat differential between the pool is incompatible with that required in the games hall” (Architects Journal, 1967). The shared atmosphere of the swimming pool and sports hall has been a major flaw in the building’s fitness for purpose since it was built ¦ the swimming pool is too small to meet international competition standards as it is only six lanes wide as opposed to the eight required. Neither is it long enough being unable to accommodate touch pads to record finishing times. Additionally, there are no moveable bulkheads, bottom or booms to allow for flexible programming use of the main pool while the pool surround areas fall below the required modern dimensional standards ¦ the diving board structure cannot accommodate synchronised diving because it does not have twin pads ¦ the 'wet' changing rooms are down a flight of stairs whereas current guidance requires changing facilities to be at entry level to the pool. ¦ The layout of the building also creates problems for disabled access to the pool and other facilities ¦ glare to both wet and dry sports from the significant glazed areas is a major problem, particularly in the pool area, where spectators and life guards find it difficult to see detail on the pool surface ¦ there are a large number of maintenance problems associated with the building, such as the difficulty in changing the pool lighting using a tight and difficult to access roof space. 2.5.24 In terms of community use, the facilities are also unsatisfactory for the following reasons: ¦ the remote location of the NSC in the centre of the Park creates security concerns after dark ¦ the racing pool is inaccessible to a proportion of the local community because it is 50m long and much of it is 2m deep ¦ the facilities cannot be adapted to meet the needs of certain cultural and religious groups. 2.5.25 The NSC also requires significant revenue support in order to keep it running and within the next four to seven years significant elements of the facility, such as the roof, glazed facades, the mechanical and electrical services, may need to be replaced and upgraded to meet current standards. A substantial amount of funding would be needed to refurbish the facilities, but even this would still leave a building with major design flaws in terms of today’s standards for sporting need and one which neither meets elite or community use requirements. As a result, the centre is underused which compromises the promotion of sport in this location. 2.5.26 Despite the lack of investment and potential problems with the sporting facilities at the NSC, Sport England has made it clear that there is still a need for sports at Crystal Palace. The public consultation as outlined in Chapter 1 supports this view. GGllaarree GGllaarree Acoustics Environment Glare Access and circulation to NSC Problems with the NSC 2.5.27 As well as the NSC and other listed structures previously mentioned, there are a number of other buildings and structures within the Park. ¦ Museum (including the remains of Brunel's west tower and the time-keeper's office). This occupies the former School of Engineering, and is the only remaining building from the destroyed Crystal Palace. Much of the current exterior of the building is defaced by graffiti and requires maintenance to the fabric as well as the grounds that surround it. ¦ Urban farm in the Lower Lake Area Having been closed for restoration, no operator has been found to continue the farm facility. ¦ Concert Bowl Located over one of the older ponds in the Park and renewed in the 1990's, the platform design presents a striking visual addition to the Park and includes a stage, a backstage and overhead protection. However, in functional terms the building presents problems for both the audience and the musicians. ¦ Transmitter Tower Dating from 1956 at one of the highest elevations close to central London, the Crystal Palace transmitter remains unique as the only self-supporting lattice tower of this scale in the country. It is the highest structure in London, with a height approaching 300m (900ft) Above Ordinance Datum (AOD). ¦ Caravan Site Following its relocation in the 1980's, the caravan site is now within a tall brick walled enclosure on the site of the Rockhills accessible between the two mini roundabouts to the north of Crystal Palace Parade. ¦ Residential accommodation Over time, the northern and south-eastern edges of the Park along Thicket Road and Crystal Palace Park Road have been developed for housing. Most of the villas created were substantial in size, slightly different from the next villa and are recognised by the London Borough of Bromley as having architectural merit. Right: (top) Museum, (centre) Transmitter Tower Below: (left) Caravan Site, (centre) Concert stage (right) Urban Farm 2 CRYSTAL PALACE PARK PLANNING FRAMEWORK 19 2 Accessibility and movement of people 2.5.28 The Park supports a variety of visitor attractions serving an extensive local catchment area which extends further when national sporting events and concerts are held within the Park. Such events attract crowd number between 5,000 to 40,000, up to eight times as many visitors as the daily average. The Park's visitor and activity catchment, therefore varies from the 'local' to the 'metropolitan.' 2.5.29 For major events held at the Park, approximately one third of visitors travel by car (parking within the Park boundary and also on local streets), around one third use the train and the remainder arrive by bus, bicycle or on foot. For larger concerts the event managers assume that 60% of visitors use public transport (predominantly rail) and additional late evening rail services are usually laid on. Indeed, for major concerts held in the summer of 2005, an average of 33,000 out of the 40,000 that attended each concert came by train. 2.5.30 On event days, the highway network around the Park is managed as a controlled system management controls are advertised on the web with police and stewards using cones and advanced signage to direct traffic into and out of the Park. Other traffic is also subject to these temporary controls. 2.5.31 In terms of car parking facilities, there are extensive areas within the Park around the main entrances and a central car park serving the NSC providing approximately 560 permanent parking spaces. The smaller car parks located around the edge of the Park predominantly serve a local function for activities such as dog walking and family visits and are large enough for ‘typical’ weekday and weekend use. 2.5.32 Although there is significant parking available within the Park for major events (including a further 2,500 spaces on the Lower Terrace), it is acknowledged that significant on-street parking occurs during the staging of major events with surrounding local streets often accommodating up to 1,000 additional vehicles. However, when events such as firework displays and fairs are held on the Lower Terrace, the area is not available for car parking and additional strains are put on the local road network. Major road and rail connections serving Crystal Palace 2.5.33 With respect to those travelling to and from the Park by train for major events, arrival conditions at Crystal Palace Station are severely constrained as additional capacity is not easily accommodated on already crowded commuter- based trains. Additional longer trains are provided though by Southern Trains to ease crowd dispersal at the end of large events. CRYSTAL PALACE PARK PLANNING FRAMEWORK 20 2.5.34 Bus routes are concentrated at the bus station on Crystal Palace Parade which has a similar number of buses as Oxford Street. Bus services also run along Anerley Hill providing closer links to the Athletics Stadium and Crystal Palace Station. There is no additional service required prior to or following a major event at the Park. 2.5.35 With respect to pedestrian movement, when major events are staged within the Park, pedestrian activity is focused on five main areas: ¦ the main car parking areas inside the Park ¦ Crystal Palace Station ¦ Crystal Palace bus station and the Upper Norwood Triangle ¦ Penge Gate ¦ Crystal Palace Park Road. 2.5.36 Given the number of people attending major events, there is a need for intensive crowd management, to help the dispersal of large crowds by rail and car, particularly at the Anerley Hill entrance. Whilst crowd management enables direct egress from Crystal Palace Station before the start of major events and concerts, Ledrington Road (off Anerley Road), is used to marshal the dispersal of crowds prior to entry into Crystal Palace Station. 2.5.37 Within the Park, the network of routes for pedestrians and cyclists is unclear and confused, hampered by a maze of temporary and permanent fencing creating barriers to the free movement of visitors. Sitting within the centre of the Park, the NSC complex effectively splits the Park into two, not only creating a physical barrier, particularly for those with disabilities, but also a significant visual intrusion reducing the openness of the Park. Existing train services to and from Crystal Palace 2 CRYSTAL PALACE PARK PLANNING FRAMEWORK 21 2 2.6 Regeneration context 2.6.1 One of the main purposes of the LDA as a Regional Development Agency, is to further economic development and the regeneration of its area. This section, therefore describes the key issues relating to the Park in terms of its ability to trigger regeneration of the surrounding area in a sustainable way. 2.6.2 The Park lies within the south London sub region, but borders both the central and east London sub-regions. The LDA commissioned a study, as part of the Heart of London City Growth initiative, to identify the socio-economic challenges faced by the area surrounding the Park. The City Growth programme is in place in this area in order to support an area suffering from a declining manufacturing base and pressure from surrounding retail centres. The aim is to move the area from one dependent on declining retail centres with marginal business activities to one with a healthier economic outlook. 2.6.3 The Study found that the broader area of the Park is characterised by: ¦ high population growth (13.2% 10 year growth from 1991 versus 7.4% for London as a whole) ¦ significant ethnic diversity (38.5% non white compared with 28.8% for London) ¦ a young population (48.6% aged 16-44); ¦ relatively high crime and poor health rankings (28th percentile in crime; 53rd percentile in health). 2.6.4 From an economic standpoint the area has experienced: ¦ employment decline (-2.5% from 1988 to 2002) ¦ relatively high unemployment (3.5% compared with the London average of 3.2% based on claimant rate) ¦ low business density (282 firms per 10,000 adults compared with 516 for London) ¦ low number of business start ups (36 VAT registrations per 10,000 adults in 2002 compared with 59 for London). 2.6.5 Within the Crystal Palace area, there are high levels of deprivation, particularly in respect of housing and services and living environments. Local earnings are low and many people travel outside the area to work. There has been a significant decline, by 15.6% between 1998 and 2002, in employees in manufacturing and business and financial services. 2.6.6 As mentioned above, business density is low, resulting in very low Gross Value Added (GVA) per resident relative to south London and the wider region. Those businesses which do operate, particularly small and medium enterprises (SMEs), suffer from land constraints to development and pressure from residential development. The area suffers below average business survival rates, suggesting a highly competitive environment and lack of business skills. 2.6.7 The economy of the sub-region has shifted with the long term decline in the manufacturing base and, despite other sources of employment, future job creation is likely to be only modest. The shifting economic base and the new patterns of working and trading have affected the health of some town centres and there is a recognised need for regeneration. 2.6.8 There is, however, significant potential as the area is exceptionally well connected. Through Crystal Palace Station or the nearby stations of Anerley and Penge, the area is linked to the major central London stations and potentially has a significant population catchment. Also, the sub-region has a high number of green spaces and a significant network of town centres which are useful building blocks for the future. CRYSTAL PALACE PARK PLANNING FRAMEWORK 22 2.7 Summary 2.7.1 This chapter sets out the existing situation at Crystal Palace Park in order to assess how the Park and the facilities within it can be improved. 2.7.2 The Park is one of the largest parks in south east London but it is poorly integrated with its surroundings, both visually and physically. Whilst the Park is generally well served by public transport, it is relatively disconnected, with poor and almost incidental gateways as main access points into and out of the Park. 2.7.3 The future success of the Park will depend on better integration with the Park surroundings and connection to existing established routes and facilities. One of the key aims of the LDA's vision for the Park is, therefore, to create clearly signposted and attractive Gateways as main access points for the Park within the urban/suburban landscape. In this way, the Park will become an integral part of how people move through, experience and enjoy an area, and not a barrier to access and movement which people have to find a way around. This is fundamental to the successful regeneration of the Park and the surrounding area. 2.7.4 Any improvement proposals also need to improve the permeability and accessibility of the Park by making it easier for visitors to find their way around the Park and the attractions on offer. 2.7.5 With respect to the NSC and the sporting facilities within the Park, the existing ageing infrastructure is in need of refurbishment or replacement in order to provide for the modern day needs of the community and elite sports. The NSC has some design flaws which have created difficulties in its use since it was completed in the 1960’s and even if refurbished, at significant cost, it would still deliver a compromised solution requiring substantial and ongoing revenue support to meet operational and maintenance costs. 2.7.6 The long term future for improved sporting facilities in the Park will need to move to a more sustainable solution, creating modern facilities which are attractive to visit, have a minimum impact on the Park, which are accessible to all and which are financially self supporting. Right: (top) Deteriorating heritage assets, (bottom left) Inadequate facilities within the NSC, (bottom right) incidental gateways 2 2.7.7 In terms of the landscape of the Park today, the fragments of the Paxton landscape remaining are a potent reminder of a significant park of outstanding national interest, in terms of landscape history, archaeology, nature, architecture and engineering. 2.7.8 However the Park suffers from a lack of investment with some poorly defined boundaries, deteriorating heritage assets and a mass of fencing, roads and signage that have been erected over the years making it extremely difficult for visitors to move freely in and between certain parts of the Park. There are also concerns about safety and security issues, to some extent caused by a lack of secure boundaries around the Park but also due to the size and layout of the Park and the limited security measures. CRYSTAL PALACE PARK PLANNING FRAMEWORK 23 3: Planning policyand legal issues CRYSTAL PALACE PARK PLANNING FRAMEWORK 3.1 Introduction 3.1.1 This chapter sets out a brief summary of national planning policy, local planning policy and other specific planning designations affecting the Park together with the relevant Crystal Palace Acts. Further details can be found in Appendix 2 3.2 National planning policy 3.2.1 Relevant national planning guidance for the Park is provided by Planning Policy Statement 1 (Creating Sustainable Communities), Planning Policy Guidance 2 (Green Belts), PPG3 (Housing), PPS6 (Planning for Town Centres), PPG13 (Transport), PPG15 (Planning and the Historic Environment) and PPG17 (Open Space, Sport and Recreation). 3.2.2 PPS1 sets out the Government’s vision for planning and the overarching planning policies for the delivery of sustainable development through planning. PPS1 emphasises the need for local authorities to integrate the various elements of sustainable development and to seek to achieve outcomes which enable social, environmental and economic objectives to be achieved together. In summary, local planning authorities should: ¦ promote efficient use of land through higher densities and re-use of land and buildings ¦ encourage high quality inclusive design over the lifetime of the development ¦ emphasise the need to integrate the various elements of sustainable development ¦ seek to manage patterns of development to reduce the use of the private car and make full use of public transport. 3.2.3 Most of the Park is classified as Metropolitan Open Land (MOL). MOL is afforded the same level of protection as Green Belt. As such, the guidance in PPG2 on Green Belts, and in the case of the Major Developed Site (MDS) specifically Annex C of PPG2, is relevant to any improvement proposals for the Park. 3.2.4 The fundamental aim of Green Belt policy is to prevent urban sprawl by keeping land permanently open. As such, the main control over development is the general presumption against inappropriate development (i.e. development that is harmful to the Green Belt). Such developments should not be approved, except in very special circumstances. These circumstances will not exist unless the harm by reason of inappropriateness, and any other harm, is clearly outweighed by other considerations. The Secretary of State will attach substantial weight to the Green Belt when considering planning applications or appeals covering such development. 3.2.5 Policy G2 of the draft UDP, which reflects the guidance given at paragraph 3.4 of PPG2, permits limited infilling or redevelopment of designated Major Developed Sites which meet the criteria in paragraph C4 of Annex C. That paragraph provides that redevelopment should: ¦ have no greater impact than the existing development on the openness of the Green Belt and the purposes of including land within it, and where possible have less ¦ contribute to the achievement of the objectives for the use of the land in Green Belts ¦ not exceed the height of the existing buildings ¦ not occupy a larger area of the site than the existing buildings (unless this would achieve a reduction in height which would benefit visual amenity). 3.2.6 PPG3 provides guidance on a range of issues relating to the provision of housing and places increased emphasis on quality and layout of new development. Good design and layout of new development can help to achieve the Government’s objectives of improving the quality and attractiveness of residential areas as well as reducing the need for travel by car. Housing developments should exploit opportunities for locating around major nodes along good quality public transport corridors and seek to ensure that all housing developments are accessible by a range of non-car modes. PPG3 goes on to set out that public transport should be used positively to shape the pattern of development and that new development can equally be used to make public transport services more viable. 3 CRYSTAL PALACE PARK PLANNING FRAMEWORK 25 3 3.2.7 PPS6 focuses on a range of issues relating to planning for the future of town centres and the main uses that relate to them. The Government’s key objectives for town centres are to promote their vitality and viability by: ¦ planning for the growth and development of existing centres ¦ promoting and enhancing existing centres, by focusing development in such centres and encouraging a wide range of services in a good environment, accessible to all. 3.2.8 Other key messages of PPS6 are: ¦ enhancing consumer choice by making provision for a range of shopping, leisure and local services which allow genuine choice to meet the needs of the entire community ¦ the need to tackle social exclusion by ensuring access for all to a wide range of everyday goods and services ¦ the need to promote more sustainable patterns of development with less reliance on the car ¦ housing will be an important element in town centres, especially for mixed-use schemes and multi-storey developments ¦ Schemes for the main town centre uses are subject to an assessment of need and an application of the sequential test if proposed outside the centre. 3.2.9 PPG13 outlines the Government’s aim of achieving reduced car dependency via transport and planning policies that are integrated at the national, strategic and local level. PPG13 states that “new development should help to create places that connect with each other sustainably, providing the right conditions to encourage walking, cycling and the use of public transport. People should come before traffic.” (paragraph 28). Top: Upper Norwood town centre 3.2.10 PPG15 states that clear and convincing evidence is required for the demolition of any Grade I and Grade II* buildings and structures, and that any such demolition would be wholly exceptional and require the strongest justification. All reasonable efforts must be made for sustaining existing uses or finding viable new uses. 3.2.11 In addition, the guidance set out in PPG17 relating to open space, sport and recreation needs to be taken into account by regional planning bodies in preparation of Regional Planning Guidance (in London, the London Plan) and by local planning authorities in the preparation of development plans; they may also be material to decisions on individual planning applications. 3.2.12 Planning policies for open space, sport and recreation are seen as fundamental to delivering Government planning objectives including supporting an urban renaissance, supporting rural renewal, promotion of social inclusion and community cohesion, health and well being, and promoting more sustainable development. 3.2.13 In considering planning applications either within or adjoining open space, the local authority will need to weigh any loss of open space against benefits being offered to the community and seek to ensure that all proposed development takes account of, and is sensitive to, the local context. Paragraph 18 states that local authorities should seek opportunities to improve the value of existing facilities and encourage better accessibility of existing open spaces, sports and recreational facilities. 3.2.14 The guidance also states that planning permission for stadia and major sports developments which will accommodate large numbers of spectators, or which will function as a facility for community based sports and recreation, should only be granted when they are to be located in areas of good access to public transport. Planning permission for additional facilities, such as retail and leisure, should not be granted for any out of centre developments unless they comply with the policy set out in PPS6. CRYSTAL PALACE PARK PLANNING FRAMEWORK 26 3.3 Bromley UDP 3.3.1 The existing plan was adopted in March 1994. The Second Deposit Draft Replacement UDP, published in September 2002, was the subject of a local plan inquiry and the Inspector's report was published on 7 April 2005. The Inspector's recommendations are due to be reported to the Council in September 2005 with the replacement UDP expected to be adopted by the Council in March 2006. 3.3.2 This Framework has been prepared against the policy framework for the Crystal Palace area provided by the London Plan and the Bromley UDP (and second Deposit Draft and Inspector’s Report) and the Borough Council’s Response to the Inspector’s Report. 3.3.3 The Inspector’s Report and Borough Council’s Response to the Inspector’s Report, give further recognition to the role and importance of the Park as a principal park for south-east London and recognises its value as open parkland and as an important cultural, recreational and sporting asset. The Inspector also accepts the designation of the NSC as a Major Developed Site. 3.3.4 The Park is mentioned in Part I of the draft UDP which deals with the Council's Strategic Objectives (at paragraph 3.7(a)). The Inspector has recommended the wording be altered as follows: "Crystal Palace Park is a regional park of strategic importance for south east London with a significant Victorian heritage. It is surrounded by residents of five Boroughs and its future should be planned with the full participation of the local community and neighbouring borough authorities. The National Sports Centre and Athletics Stadium within the Park have importance as a venue for regional, national and international sport. Refurbishment or redevelopment will be necessary in the future and as a consequence that part of the Park is designated as a Major Developed Site." 3.3.5 Designating the NSC (and adjoining land) as a MDS means that redevelopment in accordance with the criteria set out in PPG2 Annex C within the MDS is permitted. However, such development should have no greater impact on the MOL than the existing development. Details of PPG2 and Annex C are set out in section 3.1 above and Appendix 2. 3.3.6 The draft UDP also puts forward the following proposal for the Park (Chapter 16, proposal 8): "to redevelop and refurbish existing facilities to meet growing demand to provide better integration of the NSC and the rest of the Park and to enhance the amenity value of the Park." 3.3.7 The Inspector has recommended that no modification should be made to the proposal. 3.3.8 The other policies in the draft UDP which are relevant to the Park include: Policy BE7 which seeks to protect statutory listed buildings (as outlined in Section 2); Policy BE9 which seeks to preserve or enhance the character or appearance of Conservation Areas; Policy BE11 which deals with the protection of historic parks and gardens;G2 dealing with MOL designation and the application of the guidance from PPG2 Annex C; and NE12 which refers to the inclusion of the Park in English Heritage's Register of Historic Parks and Garden (referred to at paragraph 3.3.9). 3.3.9 In addition, Policy BE8 seeks further protection for the many locally listed buildings within the Park area, including the Lodge (in Ledrington Road) and residential properties along Thicket Road and Crystal Palace Park Road. 3.4 The London Plan 3.4.1 The London Plan: ¦ supports the identification, within Borough UDPs, of a range of sports facilities to meet local, sub-regional and wider needs Policy 3D.5 ¦ supports working with partners to protect and promote London’s network of open spaces (Policy 3D.7) ¦ supports maintaining the protection of Metropolitan Open Land from inappropriate development (Policy 3D.9). 3.4.2 Additionally, the Mayor’s Economic Development Strategy states that a significant opportunity for sport and leisure-based regeneration exists at Crystal Palace. 3 CRYSTAL PALACE PARK PLANNING FRAMEWORK 27 3 3.4.3 The Mayor’s Culture Strategy (2004), sets out a number of policies which seek to enhance London as a world-class city of culture. Priorities for the Mayor include: ¦ ensuring major cultural developments are supported and developed, such as Crystal Palace ¦ supporting the development of major events in London ¦ championing access initiatives for children and young people ¦ supporting projects aimed at promoting participation in sport to Londoners and targeting those currently under represented in sports participation ¦ promoting the cultural potential of London’s green spaces. 3.4.4 Additionally there is the draft Sub-regional Development Framework (SRDF), (which is currently being consulted upon and will be published in its final form towards the end of 2005), which covers the south London sub-region and provides guidance on the implementation of policies in the London Plan. The SRDF sets out 65 proposed actions that are designed to give a direct steer on the subregional implementation of the strategic policies in the London Plan and guidance on matters that need to be developed in an integrated way at this level to ensure a co-ordinated approach in drawing out the strengths of the sub-region. 3.4.5 In relation to Crystal Palace, the SRDF notes that, whilst Crystal Palace has been a significant national and regional resource for athletics and other sports activities, the Mayor wishes to ensure that a new Crystal Palace sports facility is developed. It is proposed that Boroughs should consider the need to accommodate future growth in cultural and leisure services as well as build on south London’s range of sporting attractions (Proposed Action 1D). 3.4.6 The SRDF also supports the potential for regeneration within the Crystal Palace area and recognises Crystal Palace (and the regeneration of the Park and sporting facilities) as a primary location for future visitor accommodation development. 3.4.7 Annex 4 of the SRDF also identifies Crystal Palace as an area of major change which offers significant opportunities related to the National Sports Renewal Project and the Park itself as being a key example of London’s ability to address improvements in major sporting facilities. 3.5 Specific Park designations Crystal Palace Park Conservation Area 3.5.1 Crystal Palace Park, with the exception of the Hilltop area, is designated as a conservation area. Supplementary Planning Guidance adopted by Bromley Council on 15th June 1999 describes the conservation area and provides guidance and advice about the way in which the area should best be managed to preserve and enhance its character. The guidance accepts that the Park provides valuable public amenity for the local community and London as a whole. 3.5.2 A conservation area is an area of special architectural or historic interest, the character or appearance of which it is desirable to enhance. Local planning authorities are under a duty to pay special attention in the exercise of their planning functions to the desirability of preserving or enhancing the character or appearance of a conservation area and special regard will be had to such matters as scale, height, form, massing and detailed design of development proposals. 3.5.3 These factors will need to be taken into account when preparing any proposals for the Park improvement. The specific guidance in the SPG applying to the Park is set out in more detail at Appendix 2. Metropolitan Open Land (MOL) 3.5.4 The Park is currently designated as MOL in the Bromley UDP adopted in 1994 and this designation is proposed to be retained in the replacement UDP. 3.5.5 Although in the UDP, the Council had proposed to remove the Hilltop from the MOL designation, the de-designation has now been dropped in response to representations on the draft UDP. The UDP Inspector has also expressed her support for this retention of MOL status over the whole of the Park. 3.5.6 The London Plan states that MOL designation protects strategically important open spaces within the built environment which has more than a Borough significance, generally because of its catchment area. 3.5.7 MOL is defined in the UDP as "open land generally located within the urban area and considered to be of strategic importance to London as a whole." The CRYSTAL PALACE PARK PLANNING FRAMEWORK 28 Council's strategic policy in respect of such land is to protect its open character and the amenity it provides, while seeking appropriate enhancement and active management. 3.5.8 The effect of such designation is that the principles of control over development in the Green Belt, set out in PPG2, also apply to MOL such that there is a presumption against inappropriate development unless there are very special circumstances justifying such development. Any development that is considered appropriate in MOL should minimise adverse impact on the open character of the MOL through sensitive design and siting and be limited to small scale structures to support outdoor open space uses. Crystal Palace Park 3.5.9 Crystal Palace Park is listed with Grade II* on the Register of Parks and Gardens of Special Historic Interest in England, meaning that it is of great historic interest. There are only 28 Grade II* public parks in England. 3.5.10 The listing notes for the Park (March 1999 and edited in June 2001) set out the Park's history, focusing on the original laying out of the Park by Joseph Paxton as a formal landscaped setting for his relocated Crystal Palace. This has already been discussed in Section 2. 3.5.11 Whilst no additional statutory controls follow from the inclusion of the Park in the Register of Parks, the listing will be a material consideration of considerable weight in the determination of any planning applications affecting the Park. PPG15 also states that local planning authorities should protect registered parks and gardens in preparing development plans and in determining planning applications. 3 Extent of Metropolitan Open Land (MOL) Acts of Parliament designations and other site constraints Crystal Palace Park boundary Approximation of extent of ‘Blue Land’ from 1951 Act Approximation of extent of ‘Yellow Land’ from 1951 Act Approximation of extent of ‘Red Land’ from 1951 Act ‘Green Land’ from 1990 Act ‘Pink Land’ from 1990 Act 1992 transfers CRYSTAL PALACE PARK PLANNING FRAMEWORK 29 3 The National Sports Centre 3.5.12 The NSC is listed with Grade II* and considered to be of outstanding architectural or historical interest. As set out in Chapter 2, a number of other structures within the Park are also listed. 3.5.13 There are strict controls on carrying out works to a listed building and any works which will affect the building's character as a building of special architectural or historic interest, will require listed building consent, in addition to planning consent. The controls apply to the whole building and also any object or structure fixed to it. 3.5.14 However, the NSC and adjoining land are also designated as a Major Developed Site (MDS) which means that redevelopment in accordance with the criteria set out in PPG2 Annex C within the MDS is permitted provided the development does not have any greater impact on the MOL than the existing development and all other policy guidance is followed. Area of archaeological importance 3.5.15 The Park is designated as an area of archaeological importance and there are archaeological remains in evidence in the Park. The requirements of PPG16 will, therefore, need to be satisfied. These are explained in more detail in Appendix 2. 3.6 Crystal Palace Acts 3.6.1 There are three Acts of Parliament which affect Crystal Palace and Park: The Crystal Palace Act 1914 provisions saved by the 1951 Act; the London County Council (Crystal Palace) Act 1951 and the Bromley London Borough Council (Crystal Palace) Act 1990. 3.6.2 The over-riding purpose of these Acts, which underpins the control and management of the Park is that the land is held in place for education and recreation and for the promotion of industry, commerce and art. The Acts also restrict certain uses and the ability to sell, exchange, let or mortgage parts of the Park. The provisions contained within these three Acts which may constrain development proposals for the Park, are set out in detail in Appendix 2. Major Developed Site CRYSTAL PALACE PARK PLANNING FRAMEWORK 30 4: Framework principles CRYSTAL PALACE PARK PLANNING FRAMEWORK 4 4.1 Introduction 4.1.1 This chapter sets out those principles which underpin the LDA's vision for the rejuvenation and regeneration of the Park and which will guide the approach to future improvement proposals to result in a Park which benefits the local community and London as a whole. 4.1.2 These principles are derived from and build upon the strengths and weaknesses of the existing Park context set out in Chapter 2 having regard to the planning policy and site constraints outlined in Chapter 3. 4.2 Core principles 4.2.1 There are five core principles ¦ A revived metropolitan park – to create a park which acknowledges its historical past, yet embraces the twenty-first century through its design, the range of activities and its accessibility, and acts as a catalyst for the regeneration of Crystal Palace Park and the wider area. ¦ A sports and events park – which celebrates its sporting and events past and casts this in a rejuvenated park with improved sporting and event facilities to host a wide range of events and activities in a spectacular setting and in state-of-the-art facilities – from sporting and musical to historical and horticultural. ¦ A sustainable park – which embraces the principles of sustainable development and inclusive design in respect of its physical, social and economic context by improving the distinctive nature of the Park and its surrounding area, thereby enhancing environmental quality and maximising opportunities for the local community both now and in the future. ¦ An accessible and integrated park – which is better connected with the surrounding area and London, is accessible to all with improved Gateways and is safe and convenient to navigate around. ¦ An educational park – which enables visitors to learn and enjoy the Park and its facilities building on improved interpretation facilities for the Park in terms of nature and ecology, sustainability, natural history (such as the dinosaurs), the geology of the Park, and the provision of educational facilities within the Park: a learning experience in a stunning landscape setting. 4.2.2 These principles are described in more detail below. ¦¦ turning tarmac to turf ¦¦ CRYSTAL PALACE PARK PLANNING FRAMEWORK 32 A revived metropolitan park 4.2.3 The vision is not to attempt to recreate Paxton's Park as there has been too much change for this to be feasible or desirable, but to work in the spirit of Paxton's design and to acknowledge his theories and design principles at Crystal Palace and elsewhere. 4.2.4 This involves: a re-evaluation of the NSC and its related infrastructure of scattered buildings; turning ‘tarmac to turf’; addressing the balance of sport and parkland in order to aim for a reduction of the impact of the sports facilities; intensify the Gateways to define secure and active access points; acknowledge and reinforce surviving fragments of the original axis, the Upper and Lower Terraces and historic parkland; and protect and enhance the diversity of flora and fauna. 4.2.5 Having experienced changing fortunes since its conception and more latterly some neglect, one of the overarching aims is an ambition to reinvigorate the Park and its locality in order to create a significant metropolitan facility serving a local and regional community. The overall effect would be to increase the quality and quantity of Park. 4.2.6 In order to deliver an improved park with more on offer to its users, a number of different levels of intervention in the Park structure will be required, ranging from a general tidy up of the surplus infrastructure to more major additions to the Park. These can be considered as tiers of intervention, although they are not in any sense dependent on each other in terms of phasing nor are they mutually exclusive. 4.2.7 The levels of intervention would include: ¦ safety and security – including secure boundaries, upgrading lighting, enhancing security measures, and tidying up the Park landscape ¦ rejuvenation – such as additional landscape intervention, historic consolidation, some new facilities and events programmes ¦ enhancing the Park as a sub-regional destination – including additional amenity and interpretation facilities ¦ making the Park a major visitor attraction – although this is dependent on securing co-sponsorship and/or private sector funding. 4.2.8 At the top of the LDA's ambitions is to create a catalyst for regeneration, not only for the wider Crystal Palace area but also for London. A combination of these interventions could have a significant impact on the potential regeneration effects, with more major or ambitious interventions having the most impact. 4.2.9 For example, at a basic level, an improved events programme, which can be achieved without significant new investment, would bring more visitors to the Park injecting cash into the surrounding economy, raising the profile of the area, encouraging inward investment and having concomitant regenerative effects. 4.2.10 With considerable improvements to the Park, however, the benefits could be far greater. These could transform the quality of the Park as an events venue, and a recreational, leisure, sports and visitor destination. The Park facilities would be upgraded and expanded, creating an attraction which would encourage more visitors who would stay longer and spend more. Facilities could include an enhanced Crystal Palace museum, a dinosaur interpretation centre, a new café, a new visitor centre, upgrading the Terraces and Concert Bowl, a new sports centre and potentially a major visitor attraction. 4.2.11 The higher quality of facilities and the enhanced image of the Park would have the reciprocal effect of enabling an enhanced events programme thus bringing in more visitors to the Park. 4.2.12 The new Gateways would also improve accessibility and connectivity with the surrounding areas, encouraging users and visitors to flow into adjacent local centres, bringing them much needed new custom. 4.2.13 The LDA's vision for the Park is for the more ambitious programme, providing new state of the art sporting facilities, improving and extending the Park, upgrading the Park facilities and generally creating a twenty-first century metropolitan park which regenerates this part of London. 4.2.14 The overall effect is to re-establish the Park's local and regional significance building on the interest and enthusiasm for the Park’s cultural success. The vision is one of social inclusion, with the Park being a focus of the local community’s daily life, enhancing the sense of well being, local and regional identity and civic pride. The aim being to transform the Park into one of London’s treasures, as complex and diverse as the communities it serves. 4 CRYSTAL PALACE PARK PLANNING FRAMEWORK 33 A sports and events park 4.2.15 Sport, in one form or another, has always been a part of the Park and would be a core principle in any development proposals for the Park. The Mayor, Sport England and a substantial amount of the local community, support the retention of sport within the Park and facilities to address the needs and expectations of both the local community and the training requirements of potential and elite athletes. 4 nodyoC nouS yemoB egdbdeR gnevaHmahaWseoF yenkcaHnognsnedmaCneB aE yegnaHdenE woaHenaB hcR u hTwosnuoHnodgnH 1 2 3 4 5 6 7 Locations of major sports facilities within greater London 1Lee Valley Regional Athletics Centre 5 Sutton Indoor Athletics Centre 2Lee Valley Velopark 6St Mary’s University UK Athletics 3Olympic Aquatics Centre and Stadium Endurance Centre 4Crystal Palace National Sports Centre 7Brunel University Indoor Athletics Centre 4.2.16 That sport should continue in the Park is, therefore, not in doubt. Sport England is clear about the need to provide a regional multi-sport facility in this location and one of their key aims is to help create sporting infrastructure to ensure access to sport at all levels. As part of this, a network of new sports facilities is being created, to be utilised extensively by the local community as well as the elite athletes. As London currently lacks a regional sporting infra-structure, the Park provides an ideal opportunity to contribute to this in tandem with the new facilities being provided in east London for the 2012 Olympic and Paralympic Games. 4.2.17 Additionally, both the athletics and swimming associations, through their facility strategies and subsequent discussions, have confirmed the need for a new sports centre in the Park with modern facilities to ensure the continued development of their sports in London, not only at the elite level but also in terms of community development. With regards to the Amateur Swimming Association, they have stipulated the need for a modern 50 metre pool in each quadrant of London and have proposed Crystal Palace as the location in south east London. 4.2.18 Similarly, UK Athletics have identified that the majority of its athletes are based in London where there is a dearth of indoor facilities which are essential in developing the sport. It views the provision of a new modern specification indoor centre at Crystal Palace is essential if it is to meet its objectives in London. CRYSTAL PALACE PARK PLANNING FRAMEWORK 34 4 4.2.19 The LDA's proposal is, therefore, to concentrate sporting activity and its impact within a defined segment of the Park, allowing more informal recreation and other activity in the remainder. Part of the sport on offer will be a state-of-the-art new indoor sports facility integrated with the existing Athletics Stadium close to Crystal Palace Station. 4.2.20 As well as sport, events entertainment is also part of the Park's history. The rejuvenation of the Concert Bowl as a venue for summer concerts is proposed, within an improved and extended landscape setting. An additional area of informal sports and other events is also an option in the area to the north of the stadium. The Terraces would also still continue to provide a magnificent venue for fairs, rallies and exhibitions. 4.2.21 While the Framework identifies major event spaces, the whole of the Park should be regarded as a potential stage for small impromptu and organised events which might celebrate recurring themes of ecology, sport, horticulture, cultural diversity, arts, music and technology. 4.2.22 Interim use of the Park as it transforms throughout the improvement period, through an energetic programme of events to engage the whole community, is a fundamental part of the management, public relations and community strategy of the LDA's proposals which will start to consolidate around existing events bringing the Park alive as a venue and a destination. CRYSTAL PALACE PARK PLANNING FRAMEWORK 35 4 ¦¦ Economic, environmental and social sustainability will be the underlying threads of all projects and initiatives… ¦¦ A sustainable park 4.2.23 The vision is for the Park to be a showcase for sustainability, embracing the latest technologies and thinking in terms of renewable energy, reusable water, the efficient management of waste, construction and design and in the overall management of the Park so that Crystal Palace Park becomes the first truly sustainable Park in the UK. 4.2.24 This vision for rejuvenation is an evolving strategy, making improvements to the landscape and to the Gateway sites over a period of time. The ambition is to knit the rejuvenated Park firmly into its hinterland to benefit local and regional communities and to address at every level sustainable practices in order to secure the future of the Park and realise its potential. 4.2.25 The Park will be one of the first parks to propose an integrated sustainable strategy. Economic, environmental and social sustainability will be the underlying threads of all projects and initiatives proposed for the Park. This approach ensures that a robust and integrated approach, where a package of measures is proposed, will deliver an integrated, balanced and successful regeneration strategy. CRYSTAL PALACE PARK PLANNING FRAMEWORK 36 An accessible and integrated park 4.2.26 The Park as a location is generally well served by both buses and trains. Part of the vision for a revived and sustainable park is getting more users to take advantage of public transport and this may necessitate a fresh look at a range of measures including bus priority measures, new or modified services, improved travel information and improved accessibility to bus stops and the rail stations. Additionally, it is anticipated that locating a new sports facility closer to the station should encourage a shift away from the car to greater public transport use for sports and event day use, and on a day to day basis. 4.2.27 Increasing the public transport accessibility to the area through better integrated and improved facilities, including the East London Line and potential extension of Croydon Tramlink, will have a major impact in this respect. As part of the East London Line Extension, there will be significant improvements to this facility including improved access and a refurbished ticket hall. There may also be an opportunity to improve the bus station by making it more passenger-focussed, accessible and attractive. 4.2.28 Although improved public transport provision will increase visitors numbers to the Park, a significant number of visitors will still arrive by car necessitating the continued, but limited provision of satellite car parking, particularly at the Penge and Sydenham entrances. There may be an opportunity to provide car parking at the Upper Norwood Triangle Gateway which could also serve the town centre. In all cases, the quality of parking provision and its appearance will need to be improved . 4.2.29 One of the key elements of the vision is the need to activate the edge of the Park through the provision of improved Gateways. These will create focal points of activity around key access areas into and out of the Park and will help re-connect the Park with its surroundings and the local communities that use it. To do this, it is proposed to improve the five main Gateways so they act as arrival spaces that: ¦ increase connectivity with the surrounding area ¦ improve legibility in the Park (each will have its own character and distinctiveness) ¦ provide a focus for activity through the provision of such uses as bars, cafes and restaurants which will improve surveillance and security ¦ improve the experience for users entering the Park. Additionally, it will be necessary to consider the provision of improved crossing facilities for pedestrians at or near to these Gateways so that pedestrians can safely get to and from the Park across the busy roads that surround it. It will be important to reflect key desire lines when determining where these crossing facilities are located. 4.2.30 Getting around the Park safely, comfortably and conveniently is also essential in order to attract visitors to the Park. Routes will need to be accessible to all and make provision for those with disabilities. They should link the different features and areas of the Park, particularly the main event locations and transport nodes such as the railway station, car parks and bus station, assisting visitors in finding their way around and enabling people to get easily to the Gateways. The different Park areas will be linked by a broad ‘ride’ or path, a reinterpretation of the original racetrack, which can also provide overspill car parking for large events, a route for maintenance vehicles and potentially part of a cycle circuit. 4 CRYSTAL PALACE PARK PLANNING FRAMEWORK 37 4 An educational park 4.2.31 Originally conceived by Paxton as a place for instruction, the Park should build on its existing assets such as the topography and natural history, including the dinosaurs, as well as introducing new educational uses into the Park. 4.2.32 The primary aim of interpretation at Crystal Palace is to improve people’s understanding of the physical Park, its historical development, associations and meaning and knowledge of particular aspects relevant to the Park such as the discovery of dinosaurs. This also provides orientation for all visitors, helping people make decisions about what they can do, where are they in the Park and how to get to different amenities. 4.2.33 The interpretation will need to be multi-layered, reflecting the needs of the varied audiences, and imaginative in order to capture the interest of a cross section of visitors. Above all, it should communicate all that is special about the Park, particularly a sense of place. 4.2.34 The key message of the interpretation should follow these themes: Central theme Crystal Palace Park is a contemporary showcase for the ideals of the Great Exhibition. A place of discovery, cultural exchange, innovation, industry, learning and recreation. Sub themes ¦ Crystal Palace Park celebrates the achievements of the Victorian age – especially through its connection with some of the giants of Victorian innovation. ¦ At Crystal Palace Park you can discover and re-discover shared histories. ¦ Crystal Palace Park is a place where visitors can understand and appreciate nature. ¦ Crystal Palace Park is a forum for social and cultural exchange and activities. 4.2.35 Whilst the Park will be in effect a space for learning and interpretation, there should also be a focus in the form of a visitor centre which could provide space for learning and orientation and located near the Station Gateway, which is the main public transport destination. 4.2.36 This core principle is linked to the principle of sustainability within the Park and could be based around an exemplar sustainable power source that could provide the energy requirements for the new sports facilities and for other facilities within the Park. This would provide visitors with immediate exposure to the sustainability principles which underpin the vision of the Park. 4.2.37 Additionally, it is intended to develop interpretive programmes which could include ongoing projects to interpret the ‘re-discovered’ features of the Park following restoration and re-instatement, and exhibitions on themes and subjects of relevance to the Park: ¦ to encourage external, agencies to utilise the resources of the Park in accordance with the vision for outreach (museums), concerts, performances, events and activities ¦ to put in place the physical and human resources needed to sustain a programme of events and activities within a future planning framework. 4.2.38 Another important educational component is the old farm building, linked to the provision of green and horticultural skills which are in short supply in London. The proposals could see the re-use of some of the buildings and the construction of new buildings to reinforce this as a centre for learning and practical skills. CRYSTAL PALACE PARK PLANNING FRAMEWORK 38 4.3 Regenerative benefits 4.3.1 As mentioned in Chapter 2, one of the principal purposes of the LDA as a Regional Development Agency, is to further economic development and the regeneration of its area. This is the fundamental foundation of all core principles. 4.3.2 The regeneration benefits at the Park flowing from the five core principles set out above, include quantifiable benefits such as more jobs and increased tourist spend, as well as qualitative benefits for the surrounding community and London as a whole. 4.3.3 The regeneration benefits of the development proposals in accordance with these core principles should help Crystal Palace to evolve from a Local Park with disparate local centres on its edges to a Metropolitan Park at the core of a vibrant string of local district centres. This will be supported by radical improvements to public transport provision and could trigger a potential for the Park to become the “heart of south London”. 4.3.4 The effects of rejuvenation and regeneration of the Park are therefore likely to include: ¦ children attending the nurseries, training at the horticultural and sports facilities and supply chain linkages for local firms will produce respectively: childcare places, people into jobs,and learning opportunities, and business interventions. These are in addition to the capital-driven “brownfield land” and “housing units” ¦ provide the opportunity to improve health via participation in a range of sport and activity ¦ drive an increase in property value, both commercial and residential, and associated public tax yield ¦ offer a safe, convenient and pleasant place for communities, individuals, clubs and associations to gather ¦ support an environmental habitat that is sustainable and contributes to the area’s biodiversity. 4 CRYSTAL PALACE PARK PLANNING FRAMEWORK 39 5: The vision for rejuvenation CRYSTAL PALACE PARK PLANNING FRAMEWORK 5.1 Introduction From the framework principles outlined in the previous chapter, we have produced a vision for the Park, set out below. The specific proposals for the Park that will deliver this vision are then described in the following chapters. 5.2 Vision Our vision is for repair and rejuvenation, creating a revived metropolitan park of the twenty-first century, which meets the needs of local people, sports people, and the public at large and provides a valued leisure, educational and recreational resource. Our approach to the vision is composed of the following actions. 1 Activate the edges, green the core – by providing key Gateways and reducing the impact of sports related infrastructure and car parking in the park. 2 Increase the quality and quantity of parkland – by providing more accessible green space, particularly within the core of the park and improving the quality of that space. 3 Combining economic, social and physical sustainable regeneration – to produce one of the first sustainable parks which will act as a catalyst for wider regeneration in this part of south London. 4 Re-establish the Park’s local and regional significance – to become a visitor destination for the local and wider community. 5 CR Y S T A L P A LACE P ARK PLANNING FRAMEWORK 41 Major Developed Site (MD Accessible Park Non-accessible areas; and hard surfaces within MDS Buildings within MDS Major Developed Site (MDS) 5 Masterplan CRYSTAL PALACE PARK PLANNING FRAMEWORK 42 6: The Park proposals CRYSTAL PALACE PARK PLANNING FRAMEWORK 6.1 Introduction 6.1.1 In Chapter 2, the Park as it is today, six Park areas and five key Gateways for access into and out of the Park were identified. 6.1.2 Each of the Park areas and Gateways was shown to have a different character and focus and has a role to play in any improvement proposals for the rejuvenation of the Park. 6.1.3 This chapter explores those areas in relation to the overall vision of the Park. The areas are listed on the plan below. 6 Park areas Area One The NSC and Athletics Stadium Area Two The Lower Lakes Area Three The Old Cricket Pitch Area Four The English Landscape Area Five The Hilltop Area Six The Upper and Lower Terraces CRYSTAL PALACE PARK PLANNING FRAMEWORK 44 6.2 Park areas Area One – The NSC and Athletics Stadium 6.2.1 The proposal here is to provide a new sports centre with improved sporting facilities focused on community use and extended parkland to the north of the Paxton axis. The boundary of this area includes the existing MDS in Bromley’s UDP and also the station area. As outlined in Chapter 3, there are restrictions attached to this designation relating to the amount of development, the uses and the height of any proposals. 6.2.2 The boundary of the MDS was drawn to encompass most of the structures, hard standings and parking areas that lie outside the core buildings of the Athletics Stadium and NSC. As well as these buildings, it also allows for the replacement and retrenchment of buildings on a different site within the MDS area in such a way that the openness and quality of the Park could be improved offering real community benefit. Bromley Council considered this to be consistent with the objectives of MOL policy and the criteria regarding Major Developed Sites set out in PPG2 Annex C. 6.2.3 The Council also considered the designation of an MDS to be the best approach to the future control of development. The MDS designation was seen as an appropriate means of enabling the amenity value of the Park and open space to be protected and better integration of the NSC with the Park to be achieved. 6.2.4 It is also recognised that the retention of the existing NSC and an increase of built footprint within the MOL designation would be contrary to policy set out in PPG2, Annex C, would increase the visual impact on the Grade II* listed Park and be contrary to the Framework’s vision of opening up the Park through the retrenchment of the built form. Additional built development, which was not in lieu of existing buildings, would be contrary to the aims of the Inspector’s new policy for the NSC MDS in so far as ‘…any infill or redevelopment proposal should improve the openness of the Park or have no greater impact on the purposes of including the NSC land and the Park in MOL…’. 6.2.5 Furthermore, in acknowledging that the scale and siting of the existing NSC is detrimental to the fundamental layout and form of the Registered Park and significantly impacts upon its openness, the introduction of additional amounts of built development would only be possible if ‘very special circumstances’ could be demonstrated in accordance with PPG2, as discussed in Chapter 2 and Appendix 2. Additional amounts of built development would have to be considered very carefully given the vision for Crystal Palace 6 CRYSTAL PALACE PARK PLANNING FRAMEWORK 45 6 Park of increasing the quality and quantity of parkland, reestablishing the Park’s local and regional significance, increasing the area of useable park and engaging the Park with its surroundings. 6.2.6 Only through the retrenchment of the sporting facilities on to a smaller area and a reduction in built form, and the removal of the existing NSC, would there be a major opportunity to reinvigorate and improve the Park as a whole as well and provide an increased sense of openness within the heart of the MOL. 6.2.7 Having established in Chapter 2 that the existing NSC indoor arena and swimming pool do not currently perform as either an adequate community or elite facility, a number of options have been considered for their refurbishment for continued sporting use. This involved a number of scenarios, including refurbishing the existing building as it stands, swapping the wet and dry facilities in order to create a larger swimming pool or putting the pool outside the existing building envelope (totally or in part), but all required significant capital expenditure and still created a substantial revenue deficit which would require ongoing subsidy due to fundamental inefficiencies in the design of the building. Additionally, these would have a significant impact on the integrity of the listed building itself. 6.2.8 Because of the difficulties of adapting the building for sports use, other options were considered including a new facility in different locations, although still within the MDS. These options were more likely to be revenue neutral because they could be designed to be efficient in terms of energy consumption, staffing and maintenance. Given the opportunity to provide a facility which is more space efficient, specifically designed to modern standards for community and occasional elite use, and could be located nearer to public transport with less access roads, the preferred option to continue to provide a strong and sustainable sporting presence in the Park, would be a new centre. 6.2.9 Alternative uses for the listed building have also been considered, with each proposal assessed in the light of the suitability of the proposed use to the existing building, the suitability of the location, the community perception and the impact on regeneration and location in relation to town centres. Also considered were the dependency of the use on car parking and the intensity of that use and level of servicing that would be required. In conclusion, no alternative use was identified that would be compatible with the special interest of the building and which would also meet national land use, transport and spatial planning policy. 6.2.10 Demolition of the listed NSC would require the strongest justification with reference to the tests set out at paragraph 3.19 of PPG15. If the building stayed, an alternative use would need to be found for the building, but this use would need to pay for its refurbishment and ongoing maintenance. Also, the impact of development in the heart of the Park would be intensified, working against our ambition of restoring as much open and accessible parkland as possible. 6.2.11 In terms of a way forward, with an intention of reducing the extent, not the content, of the sporting infrastructure, and so the impact of sports provision on the Park, the sports facilities would be concentrated on the southern side of the Paxton axis, with a new state-of-the-art indoor sports facility in close proximity to an upgraded sports stadium and to public transport. The footprint of the former NSC and adjacent hard standings would be given back as open parkland, greening the ‘core’ of the Park. This is a key element of the vision – creating more green parkland within CRYSTAL PALACE PARK PLANNING FRAMEWORK 46 the centre of the Park, rather than it being dominated by concrete buildings and tarmac as it presently is. 6.2.12 The new indoor sporting provision would be the product of an international design competition to ensure its contribution to the Park was of the highest architectural quality. A ‘facilities brief’ was established in early 2004 to determine an optimum internal layout that allowed individual sports activities to operate with minimal conflict and maximum efficiency. All facilities will be designed to international competition standards, will provide flexibility in terms of their use and programming and will be aimed primarily at community use. 6.2.13 The ‘core’ facilities mix would be: ¦ Indoor Track ¦ Badminton Courts x 8 ¦ Training Halls x 2 ¦ Boxing Hall ¦ Sports Science/Medicine ¦ Shop (of 100sqm) ¦ Athletics Stadium ¦ Synthetic Turf Pitch x 1 ¦ Grass Pitches x 1 (5-a-side Pitches x 4) ¦ Dance Studios x 2 ¦ Fitness Suite ¦ Health suite ¦ Weight Training Rooms ¦ Teaching Pool ¦ Main 50 x 25 metre Pool (flexible use ¦ Bar including medium level diving) ¦ Crèche ¦ Vending ¦ Cafeteria 6.2.14 Given the new athletics facilities that will be provided in the Lower Lea Valley as part of the Olympics in 2012, the main stadium will be downsized to a crowd capacity of approximately 3000 to 5000. This is because the main Olympic stadium will be used for athletics in legacy mode, so the Grand Prix and events such as the World Cup and European Championships (subject to bids) would be held there after the Games. Nevertheless, we would anticipate that the redesigned stadium will still be an important venue for concerts and similar events. 6.2.15 The area surrounding the sports facilities, including the ‘new’ area of the Park, would be landscaped to the highest standards to make a positive contribution to the listed Park. The aim is to create significant associated benefits to help regain the Park’s identity and its local and regional relevance. 6.2.16 In summary, the proposals seek to provide: ¦ a reduction in physical extent of sports facilities and impact on the Park ¦ a new internationally designed sports centre south of Paxton's axis ¦ improved athletics stadium ¦ increased area of the Park north of Paxton axis and extension of open parkland /‘green arena’ in place of the former NSC ¦ consolidated car parking. 6.2.17 In terms of satisfying the core principles set out in Chapter 4, these proposals seek to provide a sports and events park and a sustainable park. 6 CRYSTAL PALACE PARK PLANNING FRAMEWORK 47 Capel Manor Area Two – the Lower Lakes 6.2.18 Although this area has recently been restored with selective woodland clearance, new perennial planting and pathways funded by the Heritage Lottery Fund, the gravel paths are poorly drained and the safety fencing is visually dominant, detracting from the experience. 6.2.19 The existing café, information point, and toilets are poor quality and are inappropriate structures in the context and grandeur of the Grand Centre Walk. The farm is not presently occupied as there have been difficulties finding a viable operator for this complex. The adjacent Paxton reservoir requires full restoration and would be a key element of any proposals for this area. 6.2.20 One proposal is for the reuse of the former farm complex as the basis for an educational use, principally linked to horticulture but also with an element of animal husbandry, perhaps specialising in reptiles. The complex could wrap around a restored reservoir, one of the few remaining 6 vestiges of Paxton’s water features, redeveloping the stables to form teaching and community accommodation. Land to the west of the farm could be used for demonstration gardens in amongst the mature oak trees, closely linked to the station and the sports centre. 6.2.21 In summary, the proposals for this area would seek to provide: ¦ improved Dinosaur interpretational facilities, café, boathouse and children’s facility in a new building at Penge Gateway ¦ reuse/part redevelopment of farm for educational use linked to horticulture and animal husbandry ¦ improved landscape ¦ replacement of unsightly fencing ¦ improved paths ¦ restored water feature by bridge ¦ an improved car parking area ¦ a relocated children’s playground and nursery. 6.2.22 In terms of satisfying the core principles set out in Chapter 4, these proposals seek to provide an educational and an accessible park. Reuse of farm for education CRYSTAL PALACE PARK PLANNING FRAMEWORK 48 Area Three – the Old Cricket Pitch 6.2.23 This area is already established as a successful public space and requires limited intervention. However, there are opportunities to improve and develop the north east edge to create revenue for the Park. Existing disparate units on Crystal Palace Park Road would be replaced by a villa edge of development of appropriate scale and quality to reflect plot size and architectural massing of Paxton’s villas. These villas would be semi detached with gardens clearly defining the Park edge. Car parking would be retained at Sydenham Gate with the Park edge defined by railings and more park gates of greater architectural significance. 6.2.24 A small wooded conservation area on the east side would be opened up sensitively for limited access as an educational resource with a boardwalk. The open service yard containing unsecured artefacts would be relocated with a new Park headquarters elsewhere in the Park. The existing play area on the south side of the field positioned at some distance from toilets and refreshments would be moved, its equipment upgraded, and parkland restored. Play would be integrated with the improved dinosaur interpretational facilities and lake edge complex in Area Two. 6.2.25A new pavilion would be located close to Sydenham Gate and on the outfield of the cricket pitch to provide basic scoring, refreshment and changing facilities, within the tree lined ‘ride’ or main path creating a strengthened edge to the field. 6.2.26 Overflow car parking of reinforced grass would be located adjacent to Penge Gate, to provide for occasional summer sporting and community events on the field. 6.2.27 In summary, the proposals for this area would seek to provide: ¦ a pavilion to support sporting use in this area ¦ strengthened landscape on the boundary of the Park ¦ a retained and improved car park accessed from Crystal Palace Park Road ¦ an option for a villa style development to the east of the car park to assist in funding new public facilities in Rockhills (see Area 4) ¦ reinforcement of the main pathway ¦ relocation of the children’s play area. 6.2.28 In terms of applying the core principles set out in Section 4, these proposals seek to provide a sports and events park, an accessible and a sustainable park. 6 CRYSTAL PALACE PARK PLANNING FRAMEWORK 49 Area Four – the English Landscape 6.2.29 New planting has been undertaken recently within this area, mostly of rhododendron and woodland grasses, but the lake edge is inaccessible to the public and the maze is situated in an enclave that may encourage anti-social behaviour. There is the opportunity to open up the Intermediate Lake, to improve its edge, remove fencing and create a facility for open educational and recreational use. Likewise site lines could be cleared up to the maze beneath existing tree canopies in order that this park asset could be more fully appreciated. 6.2.30 The Concert Bowl is much appreciated, although the concert platform itself is criticised and needs modification to the built form to enable its effective use. It is proposed to reconfigure and reduce the extent of water around the platform, allowing a more intimate relationship between audience and performer. The stone channel could also be reconsidered, creating a wider more significant planted cascade linked to the intermediate lake. A contour path would better connect the concert bowl with the sports centre and station to the south and the race circuit would be repaved and lit as part of the perimeter ‘ride’, connecting all park gates. 6.2.31The area is also presently separated from the caravan site with a block of trees and semi naturalised bank, concealing a fence line. This site is managed separately from the Park and has its own entrance off Westwood Hill where it meets Crystal Palace Parade. 6 6.2.32 There is an opportunity to relocate the caravan site elsewhere and to extend the Park by up to 1.6 hectares (3.9 acres) westward into this presently inaccessible area, creating a new public entrance at Rockhills Gate, and rejuvenating what was originally Paxton’s own demonstration garden. The option is to develop the edge of the caravan site onto Westwood Hill with terraced residential where the high brick wall exists, creating a mews arrangement overlooking the Park. This might be integrated with a community nursery and training facility on the edge of the reservoir. The income from any residential scheme would be used to fund the public facilities. 6.2.33 A new Park headquarters could be located within the terraced, walled area of the caravan site, providing a public feature glass house with park police and community gardening club storage together with offices for the Park manager and events manager. A park recycling unit and toilets would also be incorporated. On the terraces below this complex a series of community herb and flower gardens could be developed, managed in collaboration with school children, the elderly and disabled gardening clubs. Rockhills is particularly suitable for the specialist public facilities because of the additional security available there. 6.2.34 In summary, the proposals in this Park Area seek to: ¦ extend this area westwards and connecting through to the Rockhills Gate ¦ increase the amount of green space within the core of the Park ¦ enhance the Fisherman's Gate entrance by undertaking a landscape overhaul ¦ rejuvenate the Concert Bowl and associated facilities by reducing the lake size to create a more intimate relationship with the stage and enhancing back of house facilities ¦ repair cascade feature ¦ open up the Fishing Lake for benefit of the general public ¦ restore and enhance the Maze as a feature by dealing with safety and security. 6.2.35 In terms of satisfying the core principles set out in Chapter 4, these proposals seek to provide a revived metropolitan park, an accessible park, and a sports and events park. CRYSTAL PALACE PARK PLANNING FRAMEWORK 50 Area Five – the Hilltop 6.2.36 This is a highly sensitive and controversial area since the fire which burnt down the Palace in 1936. Several project proposals have been put forward formally and informally and it is clear that progress can only be achieved if it is community driven, sustainable and appropriate. 6.2.37 Therefore two options could be considered: one retaining and enhancing most of the Hilltop as parkland but with the provision of normal park facilities (play areas, toilets, etc) and a viewing platform; the second, providing all of the above plus a new indoor attraction with a café/restaurant, botanical winter garden and butterfly house. 6.2.38 The proposed parkland on the Hilltop could be the subject of an international competition, with themes such as archaeology and ecology, biodiversity and culture while preserving the existing larger trees of quality. It would bring the park closer to the communities to the west, and would reinvigorate Crystal Palace Parade linking the communities of Upper Sydenham, Upper Norwood and Gipsy Hill. 6.2.39 As part of this option, the subway structure could be revitalised. This would need to incorporate fully accessible vertical circulation and could include a restaurant and/or café and perhaps a viewing platform. Nor would this preclude an element of development. 6.2.40 An alternative option might see all of the above plus the development of a major structure on the southern extent of the Hilltop provided that this was appropriate in terms of use and scale and positively contributed to the Park. However, the larger the development, the harder it may be to fund and obtain planning permission. 6.2.41 Irrespective of which option comes forward, a major new high quality Gateway to the Park is proposed at the Norwood Triangle which is described in more detail below. This development would generate vitality, a sense of identity and safety. It would incorporate active edges to bring life into the Park and reconnect the Park with this small town centre. This proposal would be integrated with the bus terminal and possible future tram-link extension to enhance everyday community links, tourism and events. It would also generate funding to put towards Park improvements in this and adjoining areas of the Park. 6.2.42 In summary, the proposals for the Hilltop would need to: ¦ retain the area predominantly as parkland ¦ provide for normal park facilities ¦ reuse the subway, potentially as part of a related development opportunity ¦ potentially see the introduction of a new indoor attraction which would house a range of facilities ¦ create a major Gateway to the Park from the Norwood Triangle 6.2.43 In terms of satisfying the core principles set out in Chapter 4, these proposals seek to provide a revived metropolitan park and an accessible park.. 6 CRYSTAL PALACE PARK PLANNING FRAMEWORK 51 6 Area Six – the Upper and Lower Terraces 6.2.44 These structures would be retained and structurally consolidated to prevent further deterioration. In some areas where the structures are incomplete, reinstatement of lost stepped sections would occur to enable appreciation of the total composition and to improve access through the Park. An integrated strategy of accessibility would be considered incorporating ramped sections and adjustment to levels to ensure that appropriate balustrade heights are achieved to meet regulations, thereby allowing all fencing to be removed. 6.2.45 These massive landscape platforms would provide space for temporary exhibitions of sculpture technology on an ambitious scale, or fairs, rallies or overflow parking on summer event days. A new integrated power supply could be installed to service such events. 6.2.46 The original pathways and fountain positions would be reinstated and reinterpreted as gardens or temporary and mobile structures, creating a temporary external exhibition facility of considerable scale. The flanking woodland planting would be retained to frame the architecture of these structures. 6.2.47 Re-planning the main vehicular access to the Park from Anerley Hill is essential to resolve the uncomfortable juxtaposition of geometries between the highway and the corner of the Lower Terrace. 6.2.48 This would reduce the impact of the roadway, creating a more friendly and inviting park entrance for pedestrians and cyclists and part of the Park-wide strategy of creating a pedestrian ‘ride’ connecting all Park gates. 6.2.49 Below the Terraces, tarmac would be converted to turf. The over scaled network of roads and parking would be replaced with lawns and arboretum flanking the Grand Centre Walk. The arboretum could be themed to celebrate native trees, thereby enhancing the Park’s biodiversity and addressing the age balance of the existing tree resource. This would amount to a significant tree planting programme integrated with a grassland management scheme to create various meadow areas. A network of intimate paths (some mown, some paved) would create places for picnicking, walking and informal sport and recreation. The new parkland would offer an appropriate setting for the listed architecture of the terraces, re-integrating them with the Park after 70 years of abandonment. 6.2.50 In summary, the proposals would seek to: ¦ maintain the openness of the Terraces for the benefit for fairs and rallies ¦ provide for power supply and exhibition space ¦ rejuvenate the Italianate Terrace as contemporary garden with a modest landscaping scheme ¦ create an arboretum which will be used as overspill car parking on event days ¦ demarcate the original fountain areas ¦ animate the Park with mobile structures on event days. 6.2.51 In terms of satisfying the core principles set out in Chapter 4, these proposals seek to provide a revived metropolitan park, an accessible park, and an educational park. CRYSTAL PALACE PARK PLANNING FRAMEWORK 52 6.3 Gateway sites 6.3.1 The vision proposes active Park Gateways both to help define the Park edge and to create a focus for activity, while the core or heart of the Park is returned to parkland. 6.3.2 The concept of the Gateway relates to the provision of clearly identifiable entry points into the Park that are secure and well defined, modelled on the traditional estate entry where gates and lodges were located together to enhance estate security. In this case, the intention is for these to enhance Park users’ security. The aim of the Gateways is, therefore, to better connect the Park with its surroundings and improve the experience for those visiting and using the Park. 6.3.3 The current situation presents the opposite condition, where the Park is intensified in the centre while the Gateways are left weak. 6.3.4 Besides reconnecting the Park with the surroundings, the Gateways could also provide a mix of commercial and Park associated facilities to generate capital and revenue funding for the Park, to provide for the ongoing management and maintenance of the Park, and to enhance the visitor experience. Without such generators of funding it is unlikely that the whole park scheme can be implemented. 6.3.5 The proposals reflect the fact that each Gateway: ¦ has a particular character and use priority ¦ incorporates park associated facilities where possible ¦ is connected by the periphery ‘ride’ or pedestrian path ¦ will incorporate the Park gates with the developments located outside this secure boundary in order that the facilities may stay open beyond dusk, be lit, active and vibrant, thereby providing a sense of safety and security. 6.3.6 The proposals for each of the Gateways are set out below. 6 CRYSTAL PALACE PARK PLANNING FRAMEWORK 53 6 Crystal Palace Station 6.3.7 The Station Gateway is a key component of the Park proposals. It is the main arrival point and links the Park to the wider regional and local infrastructure with the potential to become a key public transport interchange. 6.3.8 The station building is listed, and has impressive vaulted roof structures over lower platforms. Its present setting, however, is disappointing. The East London Line extension works will enable the re-opening of the original ticket hall which could service all the platforms. This could allow recent additions, in particular the mediocre ticket hall on the south side, to be stripped away so that the whole station and every platform will be fully accessible. Several alignments are being considered for a tramlink and it may be that a tram interchange is also incorporated, subject to future consultations and feasibility studies. Indeed, the designs for both Station and Norwood Triangle Gateways would not preclude such provision if this became a firm proposal in the future. 6.3.9 Accessibility and safety are priority considerations, since neither is satisfactory at present. By removal of the turnstiles, bridges and fences that create the visual and physical barriers on entering the Park today, and through prioritising pedestrian rather than vehicular traffic, the Park can be opened up to safer, more convenient and accessible public transport links. Should a more compact sports centre be developed on the south side of the Park adjoining the stadium, this too can be better integrated with the station. 6.3.10 Although the existing cutting will be retained, the boundary treatment will be improved and the trees opposite the station on the west side of the cutting will be removed to create open linked views whilst retaining the better quality trees to each side of the cutting. 6.3.11 The opportunity to develop this Gateway with key worker housing and / or hostel accommodation for the sports centre is under consideration. The development would be within the Park but outside the existing brick wall, originally part of the glazed link to the Palace. The development would be a catalyst for upgrading Ledrington Road but would need to effectively create a perimeter block with existing development on Anerley Hill. 6.3.12 There would be the opportunity for a new boundary of high quality Park railings and Park gates which could be integrated into the proposals to create a defined Park boundary where presently enclosure is weak. 6.3.13 Imm