Agenda Item 8 Report PC Report to Planning Committee Date of Committee 16 September 2015 By Director of Planning Local Authority Council

Application No: SDNP/15/03333/FUL Validation Date 6 July 2015 Target Date: 31 August 2015 Applicant: Mr Brian Allinson Proposal: Demolition of existing grounds maintenance shed and shelter and construction of new sports pavilion. Site Address Rogate Recreation Ground East Street Rogate GU31 5BH Purpose of Report The application is reported to committee for a decision

Recommendation: That the application be Approved for the reasons and subject to the conditions set out in paragraph 10.1 of this report.

Executive Summary

The proposal is to provide improved facilities for a range of existing users of the recreation ground. The principle for the provision of such a building is supported by both the saved policies of the Chichester District Local Plan 1999 and those of the NPPF with regard to supporting the rural economy and promoting healthy communities. The building itself is considered to be well-designed and sympathetic in terms of scale and siting in the context of this well-used recreation ground and would not have an adverse impact on the wider National Park landscape or on the community of Rogate itself.

1. Site Description

1.1 Rogate recreation ground lies to the north east of the village centre, with access via the entrance to the village hall car park off North Street. Part of the western and southern boundaries of the recreation ground are coincident with the boundaries of the conservation area.

1.2 The recreation ground is clearly a very well used facility and offers opportunities for a number of different sports, including football (in different formats), cricket, bowls and tennis as well as a dedicated multi-use games area (MUGA) and toddlers play area. As a result it is acknowledged that the opportunities for siting a replacement pavilion are limited. The location suggested is close to the northern boundary on the site of the existing storage buildings. Its position is considered to be acceptable as it is reasonably related to existing built development in the form of the village hall itself and Hall Cottage just to the west.

2. Relevant Planning History

SDNP/14/06069/PRE - New sports pavilion. Pre-application advice given 12.01.2015.

3. Proposal

The proposal is to replace the existing storage buildings and limited changing facilities available in the village hall with a larger, bespoke pavilion located at the northern end of the recreation ground, which itself is situated to the east of the village hall.

4. Consultations

Environmental Strategy Unit - CDC

Bats

As detailed within the Ecological Scoping Survey February 2015 there is potential for bats to be roosting within the two buildings and horse chestnut tree on site. Due to this and as recommend within the survey further bat emergence surveys are required to determine if bats are roosting onsite prior to determination. This survey needs to be undertaken by a suitably qualified ecologist during the active breeding period (May - September) and submitted for are approval with the planning application. If bats are found to be roosting within the buildings or tree mitigation will be required and a mitigation strategy should be produced and also submitted with the planning application prior to determination.

The lighting scheme for the site will need to take into consideration the presence of bats in the local area and the scheme should minimise potential impacts to any bats using the trees, hedgerows and buildings by avoiding unnecessary artificial light spill through the use of directional light sources and shielding.

Hedgerows

The hedgerows onsite are protected under the hedgerow regulations and need to be retained and enhanced. This will include having a buffer strip around the hedgerows (5m) and during construction fencing should be used to ensure this area is undisturbed. Any gaps should also be filled in using native hedge species to improve connectivity for foraging and commuting bats. Conditions should be used to ensure this.

Nesting Birds

Any works to the trees or vegetation clearance should only be undertaken outside of the bird breeding season which takes place between 1st March - 1st October. If works are required within this time an ecologist will need to check the site before any works take place (with 24 hours of any work).

Sports Council SE Region - CDC

Thank you for consulting Sport on the above application. It is understood that the site forms part of, or constitutes a playing field as defined in The Town and Country Planning (Development Management Procedure) (England) Order 2010 (Statutory Instrument 2010 No. 2184). The consultation is therefore statutory and Sport England has considered the application in the light of the National Planning Policy Framework (in particular Par 74) and its policy to protect playing fields, 'A Sporting Future for the Playing Fields of England.'

Essentially Sport England will oppose the granting of planning permission for any development which would lead to the loss of, or prejudice the use of, all/part of a playing field, unless one of 5 exceptions applies:

E1 An assessment has demonstrated that there is an excess of playing fields in the catchment and the site has no special significance for sport E2 The Development is ancillary to the principal use of the playing field and does not affect the quantity/quality of pitches E3 The Development only affects land incapable of forming part of a playing pitch and would lead to no loss of ability to use/size of playing pitch E4 Playing field lost would be replaced with equivalent or better playing field in terms of quantity, quality and accessibility E5 The proposed development is for an indoor/outdoor sports facility of sufficient benefit to sport to outweigh the detriment caused by the loss of playing field

The application proposes the creation of a pavilion to support the use of the playing field. It would provide two changing rooms, a club room and a store room. The existing Storage shed would be demolished. The pavilion would be accessed across the playing field. No hard surface has been proposed as part of the application.

As the proposed pavilion would be ancillary to the principal use of the playing field and due to its location would not reduce the sporting potential of the site, it has been considered to fulfil the circumstances set out in Exception Policy E2 which states: E2 The proposed development is ancillary to the principal use of the site as a playing field or playing fields, and does not affect the quantity or quality of pitches or adversely affect their use. This being the case, Sport England does not wish to raise an objection to this application, subject to the following condition being attached to the decision notice (if the Council are minded to approve the application):

_No development shall commence until a scheme to ensure the continuity of the existing sports use of the playing fields shown edged red on Drawing No. B019.1 006A during construction works is submitted to and approved in writing by the Local Planning Authority [after consultation with Sport England]. The scheme shall ensure that the sports facilities remain at least as accessible and at least equivalent in terms of size, usefulness, attractiveness and quality to the existing playing fields and shall include a timetable for implementation. The approved scheme shall be implemented and complied with in full throughout the carrying out of the development. Reason: To protect playing field from damage, loss or availability of use and to accord with Development Plan Policy **.'

Parish Council Consultee

The application represents an excessive increase in built space necessary for the proper enjoyment of the sporting facilities by users Parking at the site is already insufficient for the number of users attracted and the application fails to address this issue The inclusion of a large 'club-room' in the application would potentially have a negative impact on existing local businesses.

5. Representations

7 representations received.

6 Third Party support

Would be a positive benefit for sport and the community Would encourage greater participation Plans are unobtrusive and in keeping with the surrounding area.

Agents supporting information

The recreation ground is well used by a number of sporting activities, including football, cricket, tennis, bowls, multi-use games area and children's play area. Former changing facilities on northern edge of recreation ground. Now only provide storage for maintenance equipment and is in a poor state of repair. Current changing facilities and club room for recreation ground users housed in cramped conditions in village hall. Proposed pavilion will meet sport England and Football Foundation standards. Will provide changing facilities , storage for grounds maintenance equipment and a small club room. Reflects district Councils commitment to improving community recreation facilities. Siting is close to that of existing storage sheds Visually relatively well contained from external view Design is appropriate to location and scale is modest Users of recreation ground fully supportive. Parish Council also supportive.

Applicants response to Parish Council comments

The pavilion is designed in line with Sport England guidelines and dimensions. It is the existing sports clubs that will still use the car park. There will be no increase in cars Can only assume that the reference to negative impact on existing local business concerns The White Horse. There will be no request for a licence/bar facilities. Sports clubs will continue to use the White Horse for all 'after events' socialising.

6. Policy Context

6.1 Applications must be determined in accordance with the Development Plan unless material considerations indicate otherwise. The statutory development plan in this area is the Chichester Local Plan First Review (1999). The relevant policies to this application are set out in section 7, below.

National Planning Policy Framework (NPPF) and Circular 2010

Government policy relating to National Parks is set out in English National Parks and the Broads: UK Government Vision and Circular 2010 and The National Planning Policy Framework (NPPF) which was issued and came into effect on 27 March 2012. The Circular and NPPF confirm that National Parks have the highest status of protection and the NPPF states at paragraph 115 that great weight should be given to conserving landscape and scenic beauty in the National Parks and that the conservation of wildlife and cultural heritage are important considerations and should also be given great weight in National Parks.

6.2 National Park Purposes

The two statutory purposes of the SDNP designation are:

 To conserve and enhance the natural beauty, wildlife and cultural heritage of their areas;  To promote opportunities for the public understanding and enjoyment of the special qualities of their areas.

If there is a conflict between these two purposes, conservation takes precedence. There is also a duty to foster the economic and social well being of the local community in pursuit of these purposes.

6.3 Relationship of the Development Plan to the NPPF and Circular 2010

In addition to the above, the following paragraphs and sections of the NPPF are also considered relevant to the consideration of this application:

Paragraphs 14, 17, 28 (4th bullet point), 70, 74 Sections 7, 11

The draft South Downs Local Plan Preferred Options 2015 was approved by the South Downs National Park Authority on 16 July 2015. The public consultation on the document will take place in September and October 2015. The document and the policies contained therein are now a material consideration when determining planning applications within the National Park, however at this stage the policies will carry limited weight.

The following policies are considered relevant to this application:

SD5 - Landscape character SD6 - Design SD9 - Dark Night Skies SD21 - Recreation SD53 - New and Existing Community Infrastructure

6. 4 The South Downs Partnership Management Plan The South Downs Partnership Management Plan (SDPMP) was adopted on 3 December 2013. It sets out a Vision and long term Outcomes for the National Park, as well as 5 year Policies and a continually updated Delivery Framework. The SDPMP is a material consideration in planning applications and has some weight pending adoption of the SDNP Local Plan. The following Policies and Outcomes are of particular relevance to this case:

General Policy 1 Conserve and enhance the natural beauty and special qualities of the landscape and its setting, in ways that allow it to continue to evolve and become more resilient to the impacts of climate change and other pressures.

General Policy 3 Protect and enhance tranquillity and dark night skies.

General Policy 48 Support the towns and villages in and around the National Park to enhance their vital role as social and economic hubs.

General Policy 49 Maintain and improve access to a range of essential community services and facilities for communities in the National Park.

General Policy 50 Housing and other development in the National Park should be closely matched to the social and economic needs of local people and should be of high design and energy efficiency standards, to support balanced communities so people can live and work in the area.

7. Planning Policy

The following policies of the Chichester Local Plan First Review (1999) are relevant to this application:

 CHRE1 (CH)Development In The Rural Area Genera  CHBE11 (CH)New Development  CHR2 (CH)Provision Of Facilities In Rural Are

8. Planning Assessment

8.1 The main issue is considered to be the effect of the proposed development on the character and appearance of the surrounding area.

Principle of development

8.2 The principle of providing new or improved sporting and community facilities is supported by policies in the Development Plan (Policy R2 of the Saved Chichester District Local Plan policies) and the NPPF at paragraphs 28 and 70 in particular. The emerging policies of the South Downs Preferred Options Local Plan 2015 also provide support for new and existing community infrastructure. This building will bring about enhanced provision to a variety of community and sporting clubs that currently use the recreation ground and is supported by Sport England.

Design

8.3 The design approach that has been adopted is for a single storey building with external finishes of natural, untreated oak boarding under a cedar shingle pitched roof. The proposed accommodation and facilities comprises home and away changing rooms and showers, modest club room and grounds' maintenance equipment store. The scale of the building is considered to be relatively modest but reflect the minimum standards necessary to satisfy Sport England and the Football Foundation for grant aid purposes. The use of natural materials in its construction is considered to be a sympathetic response to the pavilion's setting within it immediate landscape.

8.4 The building incorporates a south - facing verandah and a modest decked area at its western end. The main areas of glazing, including the glazed west gable are shielded by the verandah roof and a roof over-sail, which are considered to offer effective mitigation to any upward light pollution. A small number of rooflights are incorporated into the roof at the eastern end of the building and these will be shielded by automatically controlled external shutters designed to close at night time, again to mitigate against light spill.

Visual Impact

8.5 This part of the recreation ground is visually quite well contained and as such it is not considered that the building would be an assertive or prominent feature in the wider landscape. Whilst is acknowledged that the pavilion would be a focal point in visual terms when viewed from the recreation ground it is considered that in the context and use of its immediate surroundings, the building is considered to be an appropriate addition to the locality.

8.6 Views of the building from the public viewpoints along North Street from the west and north are restricted by existing buildings (including the village hall itself) and well established hedgerows to the margins of the highway. A public footpath traverses the field to the north of the application site, which would afford mainly views of the proposed pavilion roof, although this will be seen in the context of the existing boundary hedgerow and backdrop vegetation and built development along the margin of the field. Medium and long distance views from further to the north of the application site as the footpath climbs toward Fyning Common, although at this point the built environment of Rogate as a whole forms the dominant backdrop to the location of the proposed pavilion.

Other matters

8.7 The Parish Council have raised three areas of concern in relation to this proposal. The first concern relates to the overall size of the building in that the level of accommodation is excessive. The applicant has made it clear that the facilities must be of a minimum size in order to attract funding from Sport England and the Football Foundation. Sport England have provided a consultation response that is supportive of the proposals as submitted and that it remains ancillary to the principal use of the site as a playing field.

8.8 The second issue relates to car parking provision. The proposals intend to maintain the car parking provision as existing, which comprises available spaces at the village hall itself together with the parking area along western margin of the recreation ground itself, which amounts to 28 spaces. It is acknowledged that the Parish Council is concerned that, on occasions, spaces for car parking could be at a premium, such as when events at the village hall are held at the same time as a senior football match for example. The applicant has stressed that, in practice, this is not a particularly frequent occurrence and it should be acknowledged that this situation can occur at present. Given that the proposed pavilion is primarily to provide better, basic facilities in the form of dedicated changing rooms and showers together with replacement storage space for existing clubs and is not envisaged to result in an expansion of the use of the recreation ground, it is concluded that there is unlikely to be a material increase in parking demand over and above that which exists at present.

8.9 The third issue relates to the potential impact of the inclusion of a club room within the building on existing local businesses. The Parish have not expanded upon this concern and so it is difficult to comment constructively in response. However, the applicant has explained above that there is no intention to compete with other businesses such as the White Horse PH and it should be noted that the level of floorspace given to this function is in fact quite small in the context of the relatively modest overall size of the building, making up approximately 25% of the total floorspace and as such is considered to be a reasonable adjunct to the other facilities to be provided in the building.

8.10 The building is to be located close to a large Horse Chestnut (marked T1 on the submitted drawings) which in the adjacent field, close to the north boundary. The tree is a notable feature on the skyline but is noted as being in poor condition in the arboricultural report. Nevertheless, care has been taken with the siting of the building in relation to this tree and others nearby and incorporates appropriate ground protection and foundation design in accordance with the recommendations in the tree report to ensure minimal impact with the root protection area. It is therefore considered that the proposals would not be detrimental to the health of nearby trees or vegetation.

8.11 The ecological potential of both the existing buildings and nearby hedgerows and trees has been assessed as part of this application. The report identifies that the Horse Chestnut has roosting potential for bats and the use of the hedgerows as foraging corridors. However, the tree is located approximately 8 metres from the north west corner of the proposed pavilion and is not directly affected by the development. The two existing buildings are identified as having relatively low potential for roosting opportunities for protected species such as bats. In the circumstances, a precautionary approach is considered appropriate and the applicant has been asked to prepare a suitable mitigation strategy in the event the presence of bats is identified. There is no intention to remove any trees or hedgerows, thus safeguarding potential foraging routes. Suitable conditions can be attached to a planning permission to ensure agreement regarding an appropriate lighting scheme taking account of both wildlife and 'dark night skies' considerations.

9. Conclusion

The proposed pavilion is considerd to be well-designed and sympathetic in terms of scale and siting in the context of its location within this well-used recreation ground. The building will provide enhanced and improved changing and storage facilities for a range of existing recreational activities within the site. Therefore the proposal is consistent with the Development Plan and NPPF objectives of supporting a prosperous rural economy and the promotion of healthy communities and is recommended for approval.

10. Recommendation

It is recommended that the application be approved subject to the conditions set out below

1. The development hereby permitted shall be carried out in accordance with the following plans:

Plan Type Reference Version Date on Plan Status Plans - Site plan 001C 04.07.2015 Approved Plans - Tree survey MWA-001 TCP 04.07.2015 Approved Plans - Tree survey MWA-002 TPP 04.07.2015 Approved Plans - Location plan 005B 04.07.2015 Approved and sections Plans - Floor plan 002C 04.07.2015 Approved Plans - Block plan 006A 04.07.2015 Approved Plans - South and west 003C 04.07.2015 Approved elevations Plans - North and east 004C 04.07.2015 Approved elevations

Reasons: For the avoidance of doubt and in the interests of proper planning.

02. The development hereby permitted shall be begun before the expiration of three years from the date of this permission.

Reason: To comply with the provisions of Section 91 (1) of the Town and Country Planning Act 1990 (as amended)./ To comply with Section 51 of the Planning and Compulsory Purchase Act 2004

03. Agreement of materials

No development shall commence until details, and samples where appropriate, of the following materials to be used in the development have been submitted to and agreed in writing by the SDNPA: Bricks, stone & any other wall facing materials; Brick bonds; Mortar mix and finish; Rain water goods (including their relationship with eaves and verges); Slates, tiles & any other roof coverings, including rooflights. Thereafter the development shall be undertaken in full accordance with that agreement unless otherwise agreed in writing by the SDNPA.

Reason: For the avoidance of doubt and in the absence of these important details from the application

04. Tree protection

No development, including site works of any description, shall take place on the site and before any equipment, machinery or materials are brought onto the site, until all the existing trees or hedges to be retained on the site have been protected by a fence to be approved by the Local Planning Authority erected around each tree or group of vegetation at a radius from the bole or boles of 5 metres or such distance as may be agreed in writing by the Local Planning Authority. This fencing shall be maintained until all equipment, machinery, surplus materials and soil have been removed from the site. Within the areas so fenced off the existing ground level shall be neither raised nor lowered and no materials, temporary buildings, plant, machinery or surplus soil shall be placed or stored thereon without the prior written approval of the Local Planning Authority. If any trenches for services are required in the fenced off areas they shall be excavated and backfilled by hand and any tree roots encountered with a diameter of 25 mm or more shall be left un severed. All in accordance with BS 5837:2012

Reason: To ensure the retention and maintenance of trees and vegetation which is an important feature of the area.

05. No external lighting

No external lighting shall be installed either on the building or anywhere within the site. This exclusion shall not prohibit the installation of sensor controlled security lighting which shall be designed and shielded to minimise light spillage beyond the site boundary.

Reason: To enable the Local Planning Authority to control the development in detail in the interests of amenity.

Note: Any proposed external lighting system should comply with the Institute of Lighting Engineers (ILE) guidance notes for the Reduction of Light Pollution.

06. Foundation design

The foundations for the proposed pavilion shall be designed and carried out in accordance with the details and specifications shown on the approved drawings and described at section 7.30 of the arboricultural survey and report dated 5th March 2015.

Reason: To ensure that the proposed development does not have an adverse impact on the future health of the adjacent Horse Chestnut tree.

07. Mitigation strategy

No demolition of the existing buildings shall commence until a detailed mitigation strategy in the event of protected species (bats) are identified as using one or both the buildings has been submitted to and approved by the SDNPA. All aspects of the approved mitigation strategy shall be carried out before the building is first brought into use.

Reason: Whilst the buildings are identified as having a low potential to offer roosting opportunities for bats, it is considered that a precautionary approach to ensure protection of protected species is appropriate.

08. Continuity of use of recreation ground

No development shall commence until a scheme to ensure the continuity of the existing sports use of the playing fields shown edged red on Drawing No. B019.1 006A during construction works is submitted to and approved in writing by the SDNPA [after consultation with Sport England]. The scheme shall ensure that the sports facilities remain at least as accessible and at least equivalent in terms of size, usefulness, attractiveness and quality to the existing playing fields and shall include a timetable for implementation. The approved scheme shall be implemented and complied with in full throughout the carrying out of the development.

Reason: To protect playing field from damage, loss or availability of use and to accord with Development Plan Policies R2 and R3.

11. Crime and Disorder Implications

It is considered that this planning application does not raise any crime and disorder implications.

12. Human Rights Implications

This planning application has been considered in light of statute and case law and any interference with an individual's human rights is considered to be proportionate to the aims sought to be realised.

13. Equalities Act 2010

Due regard, where relevant, has been taken of the National Park Authority's equality duty as contained within the Equalities Act 2010.

Case Officer Details Name: Derek Price Tel No: 01243 534734 Email: [email protected]

Appendix 1

Site Location Map

This map is reproduced from Ordnance Survey material with the permission of Ordnance Survey on behalf of the Controller of Her Majesty's Stationery Office Crown copyright. Unauthorised reproduction infringes Crown copyright and may lead to prosecution or civil proceedings. South Downs National Park Authority, Licence No. 100050083 (2012) (Not to scale).