In November 2024, letters were sent to local residents and businesses by ‘Your Shout’ consulting company about proposals for the comprehensive redevelopment of Bow Wharf.
The letter was sent on behalf of H2O Urban, a partnership between the Canal and River Trust, who own Bow Wharf, and bloc Ltd, a private developer.
The letter said the proposals are ‘to redevelop Bow Wharf as a largely residential-led development, with one retail unit together with excellent public open space.’
The benefits were stated as: ‘good-quality new homes’, ‘excellent public open space’, ‘retaining and refurbishing a heritage warehouse’ and ‘creating an attractive canal-side environment’.
There were two online consultation events and the initial two-week consultation period up to 6 December was later extended in response to criticism that this was too short.
Recordings of the two online events and the slide presentation are available on the community UK website.
The aerial view of the proposals shows:
Block A, the locally listed former warehouse, Regent Lake banqueting venue, which would be converted into 15 flats.
Block B, a new block of 21 flats that would be built on the site of the present three timber single storey buildings occupied by local businesses and community groups.
Block C, the gym, distillery, bar and Mexican restaurant would remain as they are.
Block D, a new block of 31 flats on Grove Road, 6 storeys high at the south end, reducing to 3 storeys beside the canal.
Housing and Conservation
The proposals highlight the conflict between two desirable objectives – the provision of much needed homes and the conservation of important local heritage assets for public benefit.
This article explores the background to the proposals in the context of national and local planning policies to inform and help the local community assess and respond to the forthcoming planning application from H2O Urban.
The existing borough Local Plan 2031 and the Central Area’s role in meeting Housing Need
The current Local Plan for the borough adopted in 2020 will be used to assess the proposals. This says by 2031 the central area of the borough will be required to accommodate a minimum of 7,597 housing units to meet the future needs of the borough.
(Para.19.4) The plan also says all development in the Central sub-area will seek to deliver attractive and distinctive places which:
- Create a scale and form of development that provides a consistent and coherent setting for the area it defines and relates to the prevailing townscape.
- Respond positively to the surrounding context including conservation areas and heritage assets which define the local character. (Para 19.5)
Bow Wharf and Conservation
Bow Wharf is in the Regents Canal Conservation Area. The Council’s character appraisal for the conservation area recognises the changing history of the site: ’Today the role of the Regent’s Canal and Hertford Union Canal have changed, no longer is its industrial infrastructure vital to the transportation of goods over both short and long distances, instead it offers amenity space and leisure and recreational opportunities, the chance to be quiet away from the hustle and bustle of the modern world.’
Concerning character, the appraisal says: ‘The Regent’s Canal retains elements of its industrial heritage which must be protected and successfully combined with its new role as a recreational resource, providing a peaceful haven of tranquil amenity space.’
Block A in the current proposals is a 1901 canal side warehouse, the ‘Regent Lake’ banqueting venue.
Block C is a former two-storey paint factory of 1912, now mainly occupied by a fitness gym, distillery and bar. ‘On its west side, a brick lean-to and a square chimney shaft survive from an 1896 steam saw mill, although the upper part of the chimney shaft has been replaced by a fibreglass replica concealing mobile phone masts.
The conservation area appraisal is concerned about the scale of any new buildings overshadowing the water and impacting the eco-system, and the area’s importance as a recreational and leisure resource.
The summary states: ‘The Regent’s Canal and the western part of the Hertford Union Canal is a remarkable early 19th century civil engineering achievement. It represents both an important industrial heritage and a public amenity. This is an area of particular special architectural and historic interest, worthy of protection. The character and appearance of the area, as described in this appraisal, define its special qualities.’
Regarding ongoing management: ‘When planning applications in a Conservation Area are decided, the planning authority will pay special attention to whether the character of the area is preserved or enhanced.’
The document ends by saying: ‘public meetings will be held every 5 years to maintain communications between all stakeholders and identify new opportunities and threats to the Conservation Area as they arise. The Council recognises the contribution of the local community in managing Conservation Areas, and will welcome proposals to work collaboratively to monitor and manage the area.’
Public meetings have not been held every 5 years, and the Neighbourhood Forum would welcome a public meeting for local people to hear and respond to the proposals.
The Canal and River Trust (CRT)
In 2012 all the assets and responsibilities in England and Wales of British Waterways, a statutory corporation wholly owned by the Government, were transferred to the newly founded charity, the Canal and River Trust. The Trust is now responsible for overseeing caring for a 2,000-mile network of canals and navigable rivers in England and Wales and their associated infrastructure.
The Charity’s 2023 charitable objects emphasise the central role of public benefit, including the use and enjoyment of the canal infrastructure for navigation, walking, recreation or other leisure-time pursuits in the interest of health and social welfare.
A second object is ‘to protect and conserve for public benefit, sites, objects and buildings of archaeological, architectural, engineering or historic interest on, in the vicinity of… the infrastructure property.’
The Canal and River Trust faces the huge challenge of maintaining the large network of waterways and associated assets, many of which are over 200 years old.
Finance and the Canal and River Trust
The introduction to the Trust’s 2023/24 Annual Report & Accounts explains that the Trust’s government grant has been pegged at the same level from 2023-2027, whilst costs have been rising steeply: ’Coming after a six-year period when the grant has been frozen (and hence its value would already have fallen by over 30% in real terms), this presents a very challenging prospect, putting the future of the canal network in jeopardy.’
A recent DEFRA report into CRT’s government funding beyond 2027 when the current grant ends, stated that the funding would continue but reduce over time.
The Trust therefore sees commercial income, including property development, as of increasing importance. The 2023/24 annual report says that: ‘During the year ended 31 March 2024, our commercial income was £97.1m, 12.2% higher than in the prior year. It now represents 41.0% of our total income (2022/23: 38.1%).’
Recent Development and Planning Issues at Bow Wharf
H2O Urban
In 2004, the Canal and River Trust and bloc ltd. formed H2O Urban LLP, a national joint venture company owned 50% by the Trust and 50% by the private developer, bloc Ltd.
H2O Urban works on urban regeneration and redevelopment projects across the country.
A previous 2004 application for a residential development at Bow Wharf was rejected on the grounds that:
- It was a departure from the designation of the site for leisure, recreation, arts/crafts, retail and water recreation purposes
- The design of the development would adversely affect the character and appearance of this part of the borough.
In 2005 a Court of Appeal upheld the Council’s decision to reject the application.
A subsequent 2011 planning application by H2O Urban to demolish existing buildings and construct three new blocks of 4-6 storeys was initially refused by the Council in 2013 on the grounds the development ‘would fail to preserve or enhance the open character and appearance of this part of the Regents Canal Conservation Area,’ and the ‘lack of a planning obligations agreement to secure financial and non-financial obligations.’
The decision was overturned following an appeal in 2014, due partly to planning obligations being agreed with the Council.
This development, now called ‘phase one’ by H2O Urban, was for 34 flats and a commercial space (now a café). The builder of the £6.2 million scheme was Roof Property LLP and it is a mix of 11 affordable and 23 private sale units. The affordable units were sold to London and Quadrant housing association to manage.
In 2016 H2O had a meeting with LBTH about the 3 timber pavilion buildings. They had a heritage assessment of Bow Wharf carried out in 2019 which has not been made publicly available.
The Neighbourhood Forum made a freedom of information request for this in January 2025, but has not yet obtained a copy. A separate heritage impact statement is currently being finalised by H2O for submission as part of its planning application.
H2O have discussed the reduction in employment space and building heights with the Council, and heights have been reduced as a result. The Trust believe their proposals are now acceptable to the Council.
The National Planning Policy Framework (NPPF)
The 2014 appeal decision by a planning inspector which granted permission said: ‘The proposal would represent the efficient use of a previously developed site in line with the National Planning Policy Framework’s acknowledgement of the public benefits of securing the optimum viable use of land.’
The national framework does promote the effective use of land ’in meeting the need for homes and other uses, but does so ‘while safeguarding and improving the environment and ensuring safe and healthy living conditions.’ (para. 124)
Considering potential impact of development on locally listed buildings (non-designated heritage assets), the framework says: ‘The effect of an application on the significance of a non-designated heritage asset should be taken into account in determining the application. In weighing applications that directly or indirectly affect non-designated heritage assets, a balanced judgement will be required having regard to the scale of any harm or loss and the significance of the heritage asset.’ (Para 216)
The London Plan 2021
The London Plan which guides development across the city contains a threshold approach to applications, with an initial threshold of affordable housing set at a minimum of 35% (Policy H5).
The policy on heritage conservation and growth (HC1) says: ‘C Development proposals affecting heritage assets, and their settings, should conserve their significance, by being sympathetic to the assets’ significance and appreciation within their surroundings. The cumulative impacts of incremental change from development on heritage assets and their settings should also be actively managed. Development proposals should avoid harm and identify enhancement opportunities by integrating heritage considerations early on in the design process.’
Impact of proposals on Heritage assets
The Bow Wharf proposals are described by the Canal and River Trust as a ‘comprehensive development’ of the site, providing ‘66 good-quality new homes and an engaging canal-side environment.’ They would shift the use of this heritage waterway site permanently away from employment, leisure and recreation and wider public benefit, in favour of residential use, with a substantial majority of homes being in private ownership. The locally listed Regent’s Lake building would have some modern changes, such as glazing, removed, but would be lost as a community or business space.
The three timber buildings are the homes of local businesses and community groups, including an architecture practice, cycle repair workshop, hairdresser, insurance company, an office for a local church and a Pilates service. They would be demolished and replaced by the 21 flats of Block B. The Trust argues these pavilion buildings are near the end of their economic life, having a low energy efficiency ratings and would be too expensive to upgrade. It is clear from the online consultation events that the main reason for the proposed demolition is the financial viability of the overall housing scheme which depends on Block B being built.
The central part of the site’s towpath comprising 4 permanent residential moorings will remain, and the Trust will retain use of the east-end of the tow path for operational use. There will therefore be no public access to the towpath, and the ‘engaging canal side environment’ for visitors will consist of viewing the canal through fencing similar to the adjoining mooring fencing.
The proposed new Block D, varies from 3 to 6 storeys high and would have a significant impact on the heritage character of the site, obscuring the visual link between Victoria Park and Wennington Green. The adjacent Driffield Road conservation area’s character appraisal refers to the views: ‘Important views of the area are also gained from the Regent Canal Tow path. The gardens and backs of properties in Chisenhale Road are viewed from the towpath and it is important that any proposals for development respect the existing scale and rhythm of the rear of these properties.’ (page 15)
There is also a tension in design between seeking to encourage visitors to use the new public space behind Block D to view the canal and the amenity of residents of the flats of Block D.
Tower Hamlets Local Plan Policies
The policy for sustainable growth in Tower Hamlets (Policy S.SG2) says development will be supported where it delivers managed growth ‘through preserving or enhancing the character and setting of the area, and not resulting in unacceptable impacts on the natural and historic environment and its assets, transport capacity and infrastructure.’ (Page 35)
The appendix at the end of this article lists some of the Local Plan policies that are relevant. The current proposals may well be in conflict with some of the policies.
Neighbourhood Plan and Bow Wharf
The Roman Road Bow Neighbourhood Forum anticipated the likelihood of further development proposals at Bow Wharf and developed a specific policy (HE1) for the conservation and enhancement of the site as part of the objective to bring new life to our heritage assets. The policy in the adopted plan includes the following:
‘Development proposals at Bow Wharf must demonstrate how they reflect the historic character of the area and how they will enhance both its heritage significance and cultural vibrancy.
- Developers are advised to ensure plans are developed in consultation with the Council’s conservation team, Neighbourhood Forum and the Canal and River Trust. Proposals must demonstrate widespread consultation with local businesses, residents and community groups.
- Development proposals must provide for an appropriate mix of uses that include leisure and recreational activities and, where workspaces are provided as part of redevelopment, affordable workspaces for small businesses should be provided in line with the Local Plan. Recreational provision that improves connectivity with the Green Grid and better links Victoria and Mile End Parks and/or Hackney Village with the Roman Road, will be strongly supported.’ (Page 60 of the Neighbourhood Plan)
Conclusion
The proposals are driven by the need of the Canal and River Trust to generate income to maintain the national network of waterways and their infrastructure for public benefit. It is a sad paradox that this property development scheme diminishes the heritage assets and public benefit that are at the core of the Trust’s charitable objects.
If the Council permits the planning application, it will result in the permanent loss of the Regent’s Lake building as a community facility, which could, with a new leaseholder, become a vibrant community or employment space. Granting planning approval would also see the demise of much needed employment space, which given imagination and the will, could be given extended life.
More local homes are needed but in the right location, and not at the expense of the public amenity and character of one of Bow’s most special local heritage sites. The 2014 development by H2O Urban altered significantly the historic character of the wharf. The new proposal, nearly double in size, would fundamentally shift the balance away from employment, leisure and recreational uses, to an overwhelmingly private residential use.
Enjoyment of the ‘attractive canal-side environment’ would become largely the privilege of those able to afford the new homes. Local and other visitors would have to be content with a view of the canal through a fence from the ‘excellent public space’ between the gym and new block of flats on Grove Road.
H2O Urban made a deliberate decision only to engage with local residents and businesses over the proposals close to submitting a planning application. This failure to engage with local stakeholders during the early stages of the project means the opportunity was lost to develop proposals benefitting from the knowledge, ideas and energy of local people. This would have protected a rare heritage site, whilst ensuring it both retains much needed employment space whilst developing as a vibrant cultural space for visitors and supporting the local economy.
A planning application is expected in March-April. There will be 21 days to submit comments after the planning application is validated. To view the planning application you will need to go to: https://development.towerhamlets.gov.uk/online-applications/ and type ‘Bow Wharf’ in the search bar.
If you wish to comment on a planning application and are unable to do so using the above link, please email development.control@towerhamlets.gov.uk or write to:
Planning, Housing and Regeneration, Tower Hamlets Town Hall,160 Whitechapel Road, London E1 1BJ. You must quote the reference number of the application you are commenting on.
The Forum website will be updated when we have raised the funds for this, but you can contact us at the email address below.
Email: romanroadandbowndp@gmail.com
Website: https://romanroadbowneighbourhoodplan.org
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Great article, more informative than the actual shambolic “consultation”. Please keep us updated on fb, so some local residents will not miss the opportunity to send their views to the council. I can’t possibly imagine how a 6-storey block of flats would not destroy the heritage site.