WEM1 REGENERATION OF WEMBLEY
The Regeneration of the Wembley Area as a regional sport, entertainment and leisure, including hotel, destination will be supported. The regeneration of Wembley town centre is also supported, which may involve the eastward expansion of the existing centre towards the Stadium. Industrial and business development is promoted in the Strategic Employment Area to the east of the Stadium. New residential development may also be appropriate where an acceptable residential environment can be ensured.
Proposed Pedestrian Framework
14.6.2 A key element of the planning strategy for the area is improved pedestrian links, particularly the development of a pedestrian route or promenade from Wembley Park station through to Wembley town centre which will link the three stations in the area together and serve development alongside it. (See policy WEM10 on the Three Stations Strategy.) The northern part of this pedestrian link will be Olympic Way, then it is intended that it should curve westwards past, and linking with, the new Stadium concourse through to Wembley Hill Road and then to the town centre, either via the High Road or through the Chiltern Line Cutting site if developed. This would create a 'Wembley Promenade' and be the key physical element in linking new development close to the Stadium with the town centre and in improving links between the three stations. Other pedestrian routes should link to it, thus providing an overall pedestrian framework for the area. The form and nature of the promenade should be such that pedestrian journeys do not simply terminate at the Stadium but that visitors may be attracted to surrounding development and through to the town centre. Public spaces should also be provided along the route, especially adjacent to the new Stadium so that there is an opportunity for visitors to gather and linger. The design of the route should also address the differences in level from Olympic Way and South Way to the Stadium concourse. In addition it will help encourage vitality on non-event days. It is intended that this promenade and the public spaces along it becomes a new focal point for public activities and the means of structuring the major development on sites around it.
14.6.3 The promenade and public space proposals are likely to be developed over time and eventually form a major new public space for London. Major development in the area should contribute towards the development of this route.
WEM2 PEDESTRIAN ROUTE/PROMENADE
A pedestrian route will be sought to the north and west of the Stadium linking Olympic Way to Wembley Town Centre, as part of the development of opportunity sites referred to in Policy WEM28. Contributions to the development of the route will be sought from development served by it, or it should be demonstrated how development will contribute to securing the route.
Development along the route should, where possible, have active and animated frontages at ground floor level.
Public spaces will be sought adjacent to the route and the Stadium concourse.
Location of Development
large scale retail, leisure and entertainment uses
14.6.4 In order to ensure that development in the area is accessible to the whole community, an area has been defined from Wembley Park to Wembley town centre which broadly corresponds to the area of good and very good public transport accessibility. This area, known as the National Stadium Policy Area, has the capacity to deal with current major events and the potential for this capacity to be enhanced to cope with an increase in the number of visitors.
14.6.5 Although a range of uses attracting large numbers of visitors or customers will be appropriate within the National Stadium Policy Area, it is necessary to ensure that development does not have an adverse effect on the ability of local people to easily access a good range of shops and services. Development should also meet the objective, set out in Government planning guidance, of allowing for multi-purpose trips by locating facilities close to one another and by providing good pedestrian links between them. This is the basis of the sequential approach to development, explained in the Town Centres and Shopping chapter (policy SH3), by which development should be directed in the first instance to the town centre. Within the National Stadium Policy Area, large scale leisure, entertainment and retail uses are appropriate subject to the sequential approach to site selection being applied. Any major foodstore development should be within the town centre, given such a store's role in meeting local needs and the current lack of a good quality facility within the town centre. Section 14.9 explains in more detail how it is envisaged the town centre can develop and identifies measures for improving the environment of the centre.
14.6.6 In applying the sequential approach to proposed development east of the existing town centre, considerations will include the proximity of proposed development to the edge of the existing centre, the ability to use a pedestrian link with the High Road easily, and the attractiveness of the route. If a proposed development contributes to regeneration of the town centre and the area around the Stadium, this will be a significant material consideration in determining a planning application for that proposal since the regeneration of these areas is important, as explained in paragraphs 4.1.1 - 4.2.6. Retail proposals could have a significant role to play in regenerating the town centre, providing that new development facilitates the making of linked trips with the existing centre. The provision of a good, attractive pedestrian route with active frontages along it will help achieve this.
14.6.7 The key opportunity sites in the Wembley Area are close to the Stadium and extend to within 50 metres of the edge of the town centre at Wembley Hill Road (as defined by the extent of the Secondary frontage). Although this point is over 400 metres from the designated Primary frontage, given the proximity to the town centre, the provision of an attractive pedestrian link will allow linked trips to be made between the existing High Road and new development to the east. The presence of the Stadium and other existing attractions in the vicinity is likely to increase the number of linked trips that are made both from the town centre to the Stadium area and vice versa. It may, therefore, be appropriate to characterise the key opportunity sites as edge of centre, depending on whether a link exists or is planned at the time the development is proposed. An attractive pedestrian route, as well as promoting linked trips, will also facilitate ease of access for visitors to the new Stadium, and surrounding attractions, from the High Road and, in particular, from Wembley Central station.
WEM3 LOCATION OF LARGE SCALE RETAIL, LEISURE AND ENTERTAINMENT USES
Large scale leisure entertainment and retail uses will be directed to the National Stadium Policy Area, subject to compliance with the sequential approach to selecting sites for such uses (see Policy SH3 of the Town Centres and Shopping chapter), and to the requirements of policy WEM8 relating to public transport accessibility . New development on the Major Opportunity Sites to the east of Wembley town centre should function as an extension of the existing town centre and be integrated with it. It should benefit the town centre in quantitative and qualitative terms and enhance its role as a gateway to the National Stadium and associated development. To that end, development should provide, or contribute towards, improved pedestrian links to the town centre. The links should, where possible, have pedestrian and dedicated bus priority, and continuous active frontages.
Major foodstores will be directed to sites within or adjoining the existing town centre (see Policy WEM28). Elsewhere, foodstores will be restricted to a maximum of 2,000 sqm. gross floorspace.
Hotels
14.6.8 There has been substantial demand for hotel development in the area. Wembley has been singled out by The London Tourist Board and London First as one of the three most promising locations for hotel development in London. Large hotels are encouraged to locate in the National Stadium Policy Area (see policy TEA6).
Offices
14.6.9 There has been limited demand for new office development in the area for a number of years now and the amount of available vacant floorspace remains relatively high despite the fact that some offices have changed to alternative use. However, the locational advantages of the area and the impetus provided by regeneration may lead to a revival of demand for office space and, therefore new development proposals. New purpose-built office development will be directed to the National Stadium Policy Area (see policy EMP16). There may also be pressure for the alternative use of existing redundant office buildings. The most common type of conversion of redundant office buildings in London is to residential use. Much of the National Stadium Policy Area suffers noise and disturbance from events so is unlikely to be suitable for residential conversion. Conversion to hotels is more likely to be acceptable in the area. Policy WEM4 deals with the provision of new residential development, including conversions, in the area.
Residential Development
14.6.10 High density residential development was a feature of the early development of parts of Wembley. New residential development could play a key role in the regeneration of the area adding to the vitality of the area. The Council is keen to ensure that there is not an over-concentration of a single type of housing and that the housing provided is suitable for non-family households. There are practical difficulties in developing housing in certain parts of the National Stadium Policy Area, however, as the sheer scale of crowd movements, together with associated access controls, means that on event days many residents in the Wembley Park area suffer from restrictions on access to and from their homes. Residential amenity in the area also suffers from noise from major events, particularly concerts at the Stadium.
WEM4 RESIDENTIAL DEVELOPMENT WITHIN THE WEMBLEY REGENERATION AREA
Higher density residential development is encouraged within the Wembley Regeneration Area, particularly Wembley Town Centre. Development on sites capable of 15 or more units should be a mixture of general market housing and affordable housing suitable for smaller households (including key workers) - unless 'provision-in-lieu' (Policy H4) is more appropriate.
Residential development/conversion in the National Stadium Policy Area east of Empire Way/Wembley Hill Road will be acceptable where:
(a) It is in locations where residents would not suffer undue inconvenience from restrictions on access during event days and where they would not suffer from unacceptable noise;
(b) It is a subsidiary element (preferably on upper floors) of a more comprehensive mixed-use proposal (Policy BE11); and
(c) The site is outside the Strategic Employment Area.
Employment Development
14.6.11 The area to the east of the National Stadium Policy Area has significant regeneration opportunities. The Wembley Park employment area is currently one of the main employment areas of North West London and is, consequently, identified in the Employment chapter as a Strategic Employment Area (SEA). It is well away from the Stadium where the operation of businesses, because of the provision of new road access, can benefit from a minimum of interference from Stadium and other events. That part of the existing industrial estate close to the Stadium has not been included in the SEA and provides opportunities for new facilities to be developed, subject to the provision of appropriate access.
14.6.12 If redevelopment of existing employment sites for other uses occurs, then existing employment may be lost. There is a clear need, therefore, for a strategy to relocate firms locally so that there is no net loss of employment in the area. Permission for the alternative use of occupied employment sites within the area, therefore, will be granted only if the occupier can be satisfactorily relocated locally.
WEM5 RELOCATION OF EXISTING BUSINESSES
The satisfactory relocation of displaced businesses will be sought where development involves the loss of employment uses (as defined in the Employment Chapter).
Wembley Stadium Business Park
14.6.13 An area between First Way and Fourth Way contains a number of vacant and under-used sites with very poor road links and a number of private roads. The proposed road improvements to form the Stadium Access Corridor (policy WEM14) will facilitate the regeneration of the area including the creation of a new road circulation system and improved vehicular access. The redevelopment of this area for business uses in high quality buildings and landscaping, will be encouraged, subject to improved public transport accessibility.
WEM6 WEMBLEY STADIUM BUSINESS PARK
The redevelopment for business uses of the area east of the Stadium (as shown on the proposals map) will be encouraged (see also Policy WEM14).
Development attracting large numbers of workers should contribute to public transport improvements which are appropriate to the scale of development proposed and the overall aim of significantly increasing public transport usage and reducing use of the private car.
DEVELOPMENT PRINCIPLES
Mixed Uses
14.6.14 There is also a general requirement for a mix of land uses within the National Stadium Policy Area. This will help achieve the objective of transforming Wembley into a vital urban area with a rich mix of uses. A wide range of uses will be acceptable including hotels, housing (subject to policy WEM4), offices, retail, food and drink, etc. In determining applications, regard will be had to the closeness of the relationship to the town centre and to the nature of uses proposed. For example a high retail component might be acceptable on sites close to Wembley town centre whereas event-based leisure facilities are more appropriately located on sites further away from the town centre. See also policy BE11 in the Built Environment chapter.
Access To Development
14.6.15 Policies TRN 1-TRN 4 in the Transport Chapter will be used to assess the transport impact of major development as well as the special policies in section 14.7 of this chapter. It is likely that substantial contributions will be required for a range of transport measures, which will be sought from development. The necessary infrastructure will include improvements to the stations serving the area as well as links to them (policy WEM 10), and an improved link to the North Circular Road (policy WEM14), without which the potential scale of regeneration might not be achieved. This will be necessary even with a very high modal split in favour of public transport. A balanced package of measures is required to secure a desired modal split which minimises car-use so that development is orientated towards public transport, walking and cycling.
WEM7 ACCESS TO DEVELOPMENT - THE NATIONAL STADIUM POLICY AREA
Development in the National Stadium Policy Area should be designed principally for access by public transport, walking and cycling rather than by private car. As a result, planning obligations will be secured for the improvement of local infrastructure and public transport, where the transport impact of the proposal justifies such measures.
Development Outside the Area of Very Good Public Transport Accessibility
14.6.16 The main reason why the National Stadium Policy Area is deemed appropriate for uses attracting large numbers of visiting members of the public is that most of it lies within the area of very good public transport accessibility (see Transport Chapter section 6.7). However, part of it to the east of the Stadium lies outside this area. Although physically suitable for uses attracting large numbers of people, this will only be acceptable in transport impact terms if there is an improvement in public transport accessibility within the area. Examples of the type of development which may be appropriate are sports or conferencing facilities. Uses such as retail or leisure are unlikely to be acceptable if subject to the sequential approach to site selection.
WEM8 THE NATIONAL STADIUM POLICY AREA - DEVELOPMENT OUTSIDE THE AREA OF VERY GOOD PUBLIC TRANSPORT ACCESSIBILITY
Development to the east of the Stadium outside the area of very good public transport accessibility (as shown on the proposals map) which would attract large numbers of people, will be permitted only where there are accompanying major improvements to public transport and accompanying links to a station.
Comprehensive Development
14.6.17 It is recognised that land ownership within the area is in part fragmented and that land assembly will be required to create appropriate development sites. There is a need, therefore, for a comprehensive approach to development so that the full regeneration benefits can be realised. Also, it will not be possible to achieve the proposed pedestrian linkages and shared infrastructure necessary for the area, particularly the shared parking, (see policy WEM12) by the uncoordinated development of individual sites. For this reason it is considered important that the key sites to the north and west of the Stadium are developed comprehensively. Further guidance on this is provided by supplementary planning guidance, which includes a design framework for the area together with development briefs for opportunity sites. The Council is prepared to use its full range of planning powers, including where necessary compulsory purchase, to ensure that there is a comprehensive approach to development.
WEM9 COMPREHENSIVE DEVELOPMENT- THE NATIONAL STADIUM POLICY AREA
The area to the north and west of the Stadium, as shown on the proposals map, should be developed comprehensively in accordance with the guidance
provided by the design framework for the area and other relevant supplementary planning guidance. On other sites, development should demonstrate how good links to, and a proper relationship with, adjoining sites are achieved.
14.7 TRANSPORT IN WEMBLEY
14.7.1 A key to successful regeneration in the Wembley area is good transport. Development proposals are calling into question the existing transport system and its ability to serve the new National Stadium and the wider Wembley Complex, especially in terms of attracting international sporting events and being able to cope with increased numbers of events, whilst also maintaining its local functions.
14.7.2 The problems of the town centre are accentuated by conflicts in use of its road system, between buses, other traffic and pedestrians, lack or rear servicing and a poor pedestrian environment. Whilst much of the area enjoys a good level of public transport accessibility, the convenience for public transport users is extremely poor, with buses taking some time to get through the town centre, and interchange facilities at the three stations being unattractive and substandard. A comprehensive upgrading of the infrastructure for the area is needed.
The Detailed Transport Objectives For Wembley
14.7.3 The wider objectives for transport are supplemented by a number of more detailed transport objectives for Wembley as follows: -
• To achieve regeneration in the area whilst ensuring that the transport network can operate efficiently;
• To develop an enhanced transport system capable of safely clearing all event pedestrians and vehicles broadly within 90 minutes, in line with the objective of the Stadium planning brief;
• To provides links to strategic rail proposals such as Crossrail and the Heathrow-City Link;
• To achieve a balanced upgrading of the capacity, quality and ease of interchange of the three railway stations in Wembley;
• To create a road access to the Stadium that, as well as serving as the main vehicular access is also of a high quality in environmental terms providing a world class setting for the National Stadium;
• To improve bus priority and interchange in Wembley, especially on orbital routes linking stations, and to improve the frequency and penetration of bus services to the east of the Stadium;
• To reduce traffic, improve servicing, and reduce pedestrian/ vehicular conflict in Wembley High Road so that a pedestrian-friendly environment is created.
The Local Transport Strategy for Wembley
14.7.4 If major regeneration opportunities in the area are to be realised, then major transport improvements are necessary. The local transport strategy (policy TRN21) for Wembley is, therefore, based around the following principles:-
• For the Stadium to operate effectively, with an acceptable level of parking, there is a need to secure major public transport improvements.
• Pedestrians using public transport to access the Stadium and major opportunity sites in the area should benefit from a radically upgraded pedestrian environment.
• Segregation, as far as possible, of event and non-event traffic. An improved junction with the A406 North Circular Road will be sought if the scale of new development proposed warrants it (see policy TRN19).
• Limitations on junction and highway capacity will also require controls on the total amount of car parking provided and the management of it.
• To avoid unacceptable parking and traffic related impacts in residential areas, there needs to be an expansion of both event related and non-event related on-street parking controls, with a corresponding increase in other traffic restraint and calming programmes.
The ‘Three Stations Strategy’
14.7.5 The experience of visitors to Wembley is currently marred by the poor quality of the ‘gateways’ to the area, in particular the road links to the east and the three stations. There are also key problems associated with the three stations in Wembley in terms of their ability to service the increased visitor flows to the proposed National Stadium, with its increased capacity which may be exacerbated by the development of further new visitor attractions. No one station alone can cope with the likely scale of visitors. There is a need, therefore, for an upgrading of all three stations, improved interchange and safe and upgraded routes from the stations to the proposed Stadium. All three stations also offer opportunities for major redevelopment (see policies WEM 28, 29 & 30).
14.7.6 To address these issues the ‘three stations strategy’ attempts to secure integrated improvements to the stations as well as improved pedestrian links from them to the centres of activity.
WEM10 IMPROVED RAIL STATIONS AND PEDESTRIAN LINKS
An upgrading of all three rail stations in Wembley will be secured, including improved interchange facilities and pedestrian links to them, and, if necessary, an increase in the capacity of the rail networks serving them. Development should be in accordance with the general policy on the design of new stations (TRN8).