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England and Wales High Court (Administrative Court) Decisions |
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You are here: BAILII >> Databases >> England and Wales High Court (Administrative Court) Decisions >> England, R (on the application of) v Tower Hamlets & Ors [2006] EWHC 1801 (Admin) (30 June 2006) URL: http://www.bailii.org/ew/cases/EWHC/Admin/2006/1801.html Cite as: [2006] EWHC 1801 (Admin) |
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QUEEN'S BENCH DIVISION
ADMINISTRATIVE COURT
Strand London WC2 |
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B e f o r e :
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THE QUEEN ON THE APPLICATION OF DEREK ENGLAND | Claimant | |
-v- | ||
LONDON BOROUGH OF TOWER HAMLETS | Defendant | |
and | ||
(1) TEAM LIMITED | ||
(2) TOYNBEE HOUSING ASSOCIATION | ||
(3) KEYWORKER HOMES LIMITED | Interested Parties |
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Smith Bernal Wordwave Limited
190 Fleet Street London EC4A 2AG
Tel No: 020 7404 1400 Fax No: 020 7831 8838
Official Shorthand Writers to the Court)
MR JEREMY PIKE (MR HARRY SPURR appeared on 30.06.06 only) (instructed by London Borough of Tower Hamlets, Legal Services, Mulberry PLace, 5 Clove Crescent, London E14 2BG) appeared on behalf of the Defendant
MR RUSSELL HARRIS QC and MR JAMES MAURICI (instructed by Berwin Leighton Paisner, London EC4R 9HA) appeared on behalf of the First Interested Party
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Crown Copyright ©
"Where the demolition of one or more buildings is required as part of a redevelopment for which planning permission is sought, the developer should include details of the demolition in his application for planning permission. These details should be considered by the local planning authority along with other aspects for the redevelopment. Permission to demolish the building or buildings according to such details as are agreed by the planning authority should be included in any planning permission that may be granted for the development. By virtue of article 3(4) of the Permitted Development Order, permitted development rights do not permit the demolition of a building contrary to any condition which has been imposed by a planning permission granted or deemed to be granted under Part III of the 1990 Act."
"[1] the density is excessive, the buildings are too high and too bulky, and inappropriate for this location. The canal-side building should be no more than 7 storeys in height.
[2] the overshadowing effects of the proposed development are unacceptable, as the heights of the canal-frontage buildings will significantly reduce natural sunlight for most of the day to Mile End Park, and the 'Palm Tree [Public House]'."
Pausing there, Mile End Park is the other side of the canal to the site. Going back to the grounds of objection:
"[3] Palmer's Road is too narrow and too restricted to accommodate the increased levels of traffic and parking that will occur. The development will exacerbate existing parking congestion problems along Palmer's Road; the junction with Roman Road is extremely dangerous because of the existing poor visibility, and therefore before the development commences traffic lights should be installed.
[4] the height and closeness of the proposed buildings to Victoria Wharf will significantly reduce the amount of available natural light to the flat entrances and rear rooms of the flats.
[5] the plans are still indicating the removal of the existing mature trees adjacent to the site, and this is unacceptable.
[6] the proposals will have a negative impact on the biodiversity of the area - the raised broadwalk will also make the canal-bank less attractive.
[7] noise, dust and traffic during the construction period.
[8] the proposals are not sustainable and insufficient consideration has been paid to the area at large.
[9] the scheme is contrary to the London Plan's Blue Ribbon Network policies."
"• To accommodate London's growth within its boundaries without encroaching on green spaces, policies should make the most sustainable and efficient use of space in London, by protecting and enhancing the multi-functional nature of the Blue Ribbon Network so that it enables and supports those uses and activities and require a water or waterside location.
• To make London a better city for people to live in, policies should protect and enhance the Blue Ribbon Network as part of the public realm and contributing to London's open space network. Opportunities for sport, leisure and education should be promoted. The Blue Ribbon Network should be safe and healthy and offer a mixture of vibrant and calm places.
• To make London a more prosperous city with strong and diverse economic growth, policies should exploit the potential for water-borne transport, leisure, tourism and waterway support industries. The attractiveness of the Blue Ribbon Network for investment should be captured by appropriate waterside development and regeneration. This will include the restoration of the network and creation of new links."
"The Mayor will, and boroughs should, give careful consideration to the relationship between new development and the historic environment, including listed buildings and archaeological areas. The tidal foreshore is an area of particular importance. Development should also respect waterway heritage including important structures, such as cranes and other waterway infrastructure ..."
There is then a reference to policies 4B.10 and 4B.11, and those relate to London's built heritage and heritage conservation.
"The uses of the Blue Ribbon Network and land alongside it should be prioritised in favour of those uses that specifically require a waterside location. These uses include water transport, leisure, recreation, wharves and flood defences.
For sites that are not suitable or not needed for these priority uses, developers should capitalise on the water as an asset and enhance the Blue Ribbon Network in order to improve the quality of life for Londoners as a whole, as well as for the users of the development."
Paragraph 4.98 continues:
"Waterside locations will continue to be important for regeneration and economic growth in London. Many of the waterside areas with developable land are in the Opportunity Areas defined in Chapter 5. [Those are relating to housing developments.] The Mayor will work with boroughs and other development partners to ensure that development of these locations includes a mix of opportunities to use, enjoy and improve the Blue Ribbon Network."
That suggests very much, indeed one would not be surprised, that the idea there is that the fact that the sites adjoin a waterway should mean that some use is made of that waterway for the purpose of enhancing the opportunities for some sort of leisure or some such activity for those who are going to live in the relevant development.
"There are no other direct uses of the canal proposed as part of the development. [That is apart from a reasonable canal frontage incorporating a canal level boardwalk, landscaped strip and four moorings.] This is understandable given the site's location, however the applicants should be encouraged to utilise the canal for demolition waste away and delivery of construction materials to site."
There were then set out a considerable number of policies from the London Plan relating to the Blue Ribbon Network. They include policy 4C.10. They include a number of others under 4C. But perhaps somewhat curiously not policy 4C.12. I say "somewhat curiously", because even if policy 4C.12 was not (and it clearly was not) considered to be relevant, nonetheless some of the other policies which are referred to could not on their face have been relevant; for example, promotion of new canals, not filling in docks, and so on.
"Section 4C sets out the London Plan's policies for the 'Blue Ribbon Network'. For example, Policy 4C.28, states that development adjoining canals, should 'respect the particular character of the canal', and that opportunities should be taken to improve the biodiversity value of canals'. The Mayor's design policies in relation to the Blue Ribbon Network, are set out in Policies 4C.20, 4C.21 and 4C.22. Paragraph 4.125 highlights the particular concern over the potential adverse effects that tall building can have when located next to water, and the need for the design of tall buildings to address these effects, which include the impacts of overshadowing, wind turbulence and creating a visual canyon."
As Mr McCracken points out, there is no specific reference to policy 4C.12 or indeed to 4C.10.
"It is considered that the planning issues arising from this application are demolition of the existing building, land use including housing policy, density, scale and massing, amenity space provision, impact on residential amenity and planning obligations."
He does not there specifically refer to the canal as being a relevant issue, and does not, as Mr McCracken points out, refer specifically to the Blue Ribbon Network policies and what flows from them.
"The fact that the refusal of planning permission for a change of use cannot ensure that a current use which is a permitted use will continue was as already indicated the ground of the refusal of planning permission in the case of the Dartford cinema. It is equally true that whereas in the present case the permitted use has not been started, the refusal of an application to change of use cannot ensure that permitted use will ever be started. This was a point strongly relied on. I do not find it a compelling argument. The need for housing is certainly a planning consideration. If permission is give for office use, the permission will almost certainly be implemented and the building will be unavailable for housing. If permission for office use is refused, there is at least a fair chance that the building will be used for housing rather than being allowed to stand empty.
That the desirability of preserving an existing use is a regular ground for the refusal of planning permission was, Mr Woolf said, shown by the fact that planning permission to build is frequently refused on the ground that land on which it is sought to build is agricultural land. Mr Mann contends that such a consideration is only relevant where there is a policy established by the development plan. Thus, the London county development plan contains a provision that permission will not except in very special circumstances be given for a change from residential use. ...
This question was put to Mr Mann in the course of his argument: 'If there were an application for permission to set out a little park on land on which at the time of the application there were three occupied houses, must the Secretary of State confine his attention to the merits of the park and disregard the loss of useful housing accommodation?' Mr Mann, consistently with his argument, had to answer 'Yes' and added that the right way to deal with the situation would be by way of compulsory acquisition of the site. I can see nothing in the wording of section 29 of the Act of 1971 to compel this result and to my mind it makes much better sense of the section to interpret it as imposing no such restriction on the matters being considered."
"No development shall take place until a construction management plan relating to demolition ... has been submitted to and approved in writing by the local planning authority."
"Full particulars and a specification of the canal side ecological works ... shall be submitted to and approved in writing ... before the development hereby permitted is commenced."
Now it is said by Mr Maurici, and your Lordship posed this question, "but Mr McCracken demolition would not be development. The answer to that is very simple and straightforward, my Lord. Demolition was part of the application and the conditions were clearly intended to apply to the demolition. If demolition took place otherwise than in accordance with the permission, then the permission would cease to be capable of being implemented, because the permission was for demolition and redevelopment. If the developer chose to demolish otherwise than in accordance with the planning permission, then he ceased to be capable of implementing the planning permission. The situation is the same as if you have planning permission for a house and the planning unit includes a large garden, and you then apply for planning permission for a house on a smaller planning unit which takes up the garden. If you then build the smaller house on the smaller site, you cease to be capable of implementing the planning permission that you previously had. Therefore the point is this, that while one might be able to carry out the demolition as an independent exercise without the need for planning permission, one would thereby lose the benefit of the planning permission.
"A further interim injunction to prevent demolition until the lawfulness of the planning permission has been determined."