Agenda Item No: 3
Wolverhampton City Council OPEN DECISION ITEM
Committee / Panel SPECIAL PLANNING COMMITTEE Date: 18th Nov 2008
Originating Service Group(s) REGENERATION AND ENVIRONMENT
Contact Officer(s) Stephen Alexander (Head of Development Control)
Telephone Number(s) (01902) 555610
Title/Subject Matter PLANNING APPLICATIONS
Recommendation
That Members determine the submitted applications according to the recommendation made in respect of each one. PLANNING COMMITTEE (18th November 2008)
REFERENCE SITE ADDRESS PAGE NO
08/01248/DWO Highfields School Merry Hill Page 4 Boundary Way Merry Hill Wolverhampton West Midlands WV4 4NT
Application Type Smallscale Major All Other Development
08/01249/DWO North Wolverhampton Oxley Page 14 Academy Marsh Lane Wolverhampton West Midlands WV10 6SE
Application Type Smallscale Major All Other Development
08/01247/DWO Deansfield High School East Park Page 22 Deans Road Wolverhampton West Midlands WV1 2BH
Application Type Smallscale Major All Other Development
08/01245/DWO Heath Park Business And Heath Town Page 28 Enterprise College Prestwood Road Wolverhampton West Midlands WV11 1RD
Application Type Smallscale Major All Other Development
2 08/01246/DWO The Kings School Tettenhall Regis Page 35 Regis Road Wolverhampton West Midlands WV6 8XG
Application Type Smallscale Major All Other Development
3 PLANNING COMMITTEE - 18-Nov-08
APP NO: 08/01248/DWO WARD: Merry Hill DATE: 02-Oct-08 TARGET DATE: 01-Jan-09 RECEIVED: 01.10.2008 APP TYPE: Outline Deemed Plan Permission WCC
SITE: Highfields School, Boundary Way, Merry Hill, Wolverhampton PROPOSAL: Outline application. Demolition of existing Highfields secondary school and construction of a new secondary school co-located with a new build special school.
APPLICANT: AGENT: Mr Richard Hill Mr Ian Naylor Director Or Customer And Shared Services Jacobs Engineering UK Ltd Wolverhampton City Council Sheldon Court Civic Centre Wagon Lane St Peters Square Coventry Road Wolverhampton Sheldon WV1 1SH Birmingham B1 1TT
COMMITTEE REPORT:
1 Site Description
1.1 This is an established school site located in the south-west of the City with access from Boundary Way which is a narrow road with a footpath on one side and which forms part of a large residential housing estate to the east. Directly to the north are open fields, to the south are allotments and fields and to the west open fields and Hillcroft Farm, Drive Fields which is located within South Staffs.
1.2 The site comprises 8.1035 hectares and is a major developed site located within the Green Belt and across the north boundary of the site is a flood zone.
1.3 The site comprises a mix of buildings of varying age, style and height. The main buildings are towards the east and playing fields towards the west of the site. The main building fronts Boundary Way and is four storeys high constructed of yellow brick and flat roof. Other building blocks on site are three and two storey with parking for staff and visitors located in front of these buildings. The site is generally level towards the west and bounded on the west boundary by mature trees and shrubs. There is a change in levels rising north to south and the front boundary is defined by a mature hedgerow with 2 vehicular access points which are at presently shared with pedestrians.
2 Application details
2.1 The application is submitted as part of the Building for Schools initiative (BSF) which is a central government scheme providing funding to rebuild and refurbish all secondary schools in England over a 10-15 year period.
2.2 The application is in outline with all matters reserved. Indicative drawings have been submitted which propose the demolition of the existing school buildings and a new school building (maximum height four storeys in part) which would be positioned behind the existing school buildings. This would enable the existing school to function while the new school building is constructed.
4 2.3 The proposal would also include the co-location of Pennfields Special School on the site to create two schools with 18,350 sq metres gross internal floor space which would be physically connected but administered independently with entrances to the two schools separate and clearly defined.
2.4 The new building would be located further towards the west and would be outside the existing 'major developed site' boundary.
3 Planning History
3.1 No relevant history
4 Constraints
4.1 Flood Zone Millennium Urban Forest Major Developed Site in the Green Belt
5 Relevant policies
5.1 National Policies PPS1 - Delivering Sustainable Development PPG2 - Green Belt PPS9 - Biodiversity and Geological Conservation PPG13 - Transport PPG17 - Planning for Open Space, Sport and Recreation
5.2 Regional Policy RSS11 – Regional Spatial Strategy for the West Midlands
5.3 Relevant UDP Policies AM1 - Access, Mobility and New Development AM7 - Travel Plans AM9 - Provision for Pedestrians AM10 - Provision for Cyclists AM12 - Parking and Servicing Provision AM15 - Road Safety and Personal Security C1 - Health, Education and Other Community Services C4 - Education Facilities D1 - Design Quality D3 - Urban Structure D4 - Urban Grain D5 - Public Realm Public Open Private Space D6 - Townscape and Landscape D7 - Scale - Height D8 - Scale - Massing D9 - Appearance D10 - Community Safety D12 - Nature Conservation and Natural Features D13 - Sustainable Development Natural Energy D14 - The Provision of Public Art EP4 - Light Pollution EP5 - Noise Pollution EP6 - Prot of Ground Water, Watercourses, Canals EP7 - Protection of Floodplains EP9 - Sustainable Drainage Arrangements for Development
5 G1 - Protection of the Green Belt G2 - Control of Development in the Green Belt G3 - Con. of Dev. Conspicuous from the Green Belt G4 - Major Developed Sites in the Green Belt N1 - Promotion of Nature Conservation N7 - The Urban Forest N9 - Protection of Wildlife Species R1 - Local Standards for Open Space, Sport R2 - Open Space, Sport and Recreation Priority Areas R3 - Protection of Open Space, Sport and Recreation R5 - Sports Grounds R8 - Dual-Use of Open Space, Sport and Recreation
6 Publicity
6.1 The application was advertised in the Express & Star newspaper and by site notices
6.2 Neighbour letters were sent and one letter of objection has been received which is concerned about increased traffic and parking. One letter has been received from the resident of Hillcroft Farm, Drive Fields, Lower Penn who has requested to speak to Planning Committee.
6.3 The consultation exercise undertaken by the BSF team produced comments from one resident concerned that the new school would be too close to the existing.
7 Internal consultees
7.1 Transportation - no transportation objection to this outline proposal as the combined traffic generation of the proposed development is minimal, however; there are significant errors within the TA that should be addressed in order to accurately inform the detailed design process and ensure appropriate mitigation is secured
7.2 Trees – No information contained within the application in respect of existing trees on site.
7.3 Planning Policy – The key issue is the extent to which the benefits of the proposals outweigh any conflict with UDP Policies concerned with Green Belt and playing field provision.
7.3.1 Background to the BSF programme
(i) Improving educational attainment in Wolverhampton is central to the long term sustained regeneration of the City. The existing secondary educational infrastructure in the City is becoming increasingly outdated to meet modern needs, and unless the scale of investment set out in the BSF programme is realised, then the City will fall further behind.
(ii) Whilst the adopted UDP recognises the importance of improved education facilities to the development of the City (policies C1 and C4 in particular), it pre-dates the BSF programme and does not anticipate the scale of investment in education infrastructure proposed.
(iii) The supporting information submitted with the application points to more recent policy initiatives and specifically outlines the challenge outlined in the Black Country Study to improve the performance of young people at GCSE level and to increase the numbers continuing with post -16 education. The BSF programme has been closely linked to regeneration policies set out in the Black Country Joint Core Strategy Preferred options Report (March 2008). Core Policy Area 11 (Community and Sports Facilities) promotes the sustainable location of such facilities and promotes their development and protection. There is specific acknowledgment of the important role of secondary schools in the provision of sports and recreation facilities (paragraph 6.48) which is embodied in the BSF programme. The Outline Business Case for the Wolverhampton Building
6 Schools For the Future programme recently submitted to DCSF therefore indicates specifically that the BSF programme contributes to the wider regeneration proposals for the City.
(iv) This vision is carried forward into the proposed development at Highfields Wolverhampton City Council’s commitment to the government’s vision for the education of children with special education needs and disabilities as detailed in the DCSF document “Removing Barriers to Achievement”. The document promotes the use of BSF programmes to bring special and mainstream schools together. The co-location of two special schools with two mainstream secondary schools in Wolverhampton as the sample schemes within the BSF programme therefore supports the realisation of this national ambition.
(v) The proposals also intrude onto the existing playing fields with; • 2956 sq m of cricket field lost to development representing 18% of the total cricket field. • The loss of one junior football pitch (0.41 ha) • Loss of 3 netball courts with 1 larger kickabout area (totalling 2345 sq m) • Loss of artificial cricket wicket (no longer shown on the cricket field) • Inappropriately located 3 cricket nets (?no plan key) shown situated in the middle of the cricket table – on top of, and running in the opposite direction to the existing artificial cricket wicket • Loss of 5 x 2 football grids (796 sq m)
(vi) It is assumed that the artificial cricket wicket (point 4) is probably an oversight as it appears it could be retained and the cricket nets and the football grids (points 5 and 6) could appear to be overcome by being relocated on the remaining playing fields without too much re-arrangement.
(vii) On the plus side, the scheme proposes a new 35m x 55m multi use games area in a location which will make it suitable to be used after hours and in school holidays. If this is to be the case then the new games area could be seen to replace the loss of 3 netball and 1 larger kickabout (point 3) above if the court accommodates both netball and 5 a side football and is open to the general public outside of normal school use. This would be welcomed as there is an absence of provision in the locality due to the lack of suitable open space to accommodate such a facility.
(viii) On a general note on outdoor sports pitches, as the school serves younger children on the site – especially with the merger with the Special School, provision of some junior football pitches would appear to be needed to serve this younger age of child – however, no facility is shown on these plans.
(ix) The site contains playing fields and pitches and as such the proposals are subject to evaluation under UDP Policy R5 Sports Grounds. Under this policy the proposed loss of any part of a sports ground will not be permitted unless specific criteria are met.
(x) In relation to this there appears to be no compensation for the loss of 18% of the cricket field nor the loss of the junior football pitch and the comments to Sport England on these losses are also awaited and will be discussed where the overall gains and losses of all rebuilt school sites will be considered.
7.3.2 Benefits of the proposals to the local area
(i) In addition to the benefits associated with the BSF programme in general it is considered that there are a number of more specific factors that should be considered in determining the proposal. These are:
(ii) The BSF proposals are to be of significant benefit generally to the City and local proposals such as the Highfields/Pennfields scheme will be of specific benefit to the local community by the provision of improved education and community facilities.
(iii) In formulating the proposals for this site consideration was given to rebuilding the schools on the site of the existing buildings in order to secure better fit with UDP policy G4 (Green Belt). It was
7 evident that this would have involved the decanting of a significant part of the school into temporary accommodation and this would almost certainly have resulted in putting the school into special measures due to the resultant loss of facilities and with an increased build time and additional costs which could not be identified. This would certainly have seriously affected the capacity of the school to provide facilities for the provision and progress of educational attainment.
(iv) The existing school buildings are outworn and have little architectural merit. It is considered that the retention of these buildings does little to enhance the visual amenity of the surrounding Green Belt. The current proposals are now of a contemporary and unified design which will have the opportunity to improve the environment of the wider area and arguably improve the current visual impact on the Green Belt.
(v) Whilst it is estimated that approximately 28% of the new buildings will be outside the limits as defined on the Proposals Map for this Major Developed Site, the majority of the development is clearly within the defined limits. It is therefore considered that every attempt in the design process has been made to confine any contravention of the existing policy and impact on the Green Belt, whilst having due regard to the retention of the continuing education facilities on this site during the course of construction.
(vi) Additionally it is relevant that the siting has been carefully considered to minimise intrusion beyond the existing nominal boundary as defined on the Proposals Map, does not extend past the existing peninsular outlier containing an existing 2-storey classroom block and has been positioned to maintain existing sports facilities.
(vii) Whilst the new buildings are envisaged to be four Storeys compared to the existing two/three storeys of the existing school it is considered that due to the siting of the building being set back from the road there is unlikely to be a significant intrusion within the Green Belt or impact on the adjoining properties within Boundary Way. Some lower levels of the new buildings will be positioned in order to minimise overall heights by using natural levels within the site and other areas landscaped to reduce visual impact even further.
(viii) The new development in being set further back from the road will allow the creation of a new forecourt area to include a multi use games area, access ways for pedestrians and cyclists, cycle and car parking, hard and soft playgrounds, and an area providing full access and parking for school buses and vans. This will provide a much needed improvement and solution to the existing traffic and parking problems within the area to the benefit of the local residents.
(ix) Additionally this area will contain landscaped areas which will improve the environment locally and enhance the setting of the scheme within the Green Belt.
(x) The development has been subjected to scrutiny under the West Midlands Sustainable Planning Checklist as required by this authority as a major application. The proposals exceed the expectations to meet good practice in six out of the eight categories. The results also far exceed the requirement to achieve an overall score of 67% having attained an average of 77.8% over the Checklist as a whole. This confirms that the proposals meet the current requirements to provide a sustainable development as determined by national policies.
7.4 Landscape –
(i) The proposal is for built development further into the Green Belt and increase the visual impact of the school when viewed from the countryside.
(ii) CABE publication ‘Creating Excellent Secondary Schools’ states that the setting for new buildings and the importance of external space can play a significant role in delivering the outcomes, providing safe and stimulating environments where children and young people can learn, explore, play and grow regardless of their educational needs in respect of schools and the submitted application does not refer to the significance of this.
8 (iii) The layout would be dominated by parking and hard surface which would create an unattractive setting for the new building unless these areas are carefully treated and designed.
(iv) A landscape strategy should have been submitted with the application including a visual impact assessment; statement on the design philosophy for both hard and soft landscaped areas, plan showing trees lost as a result of the development and proposals for the development of the ecological and nature conservation value of the site.
7.8 Property Services – no response received
8 External consultees
8.1 Local and Neighbourhood Arrangements – no response received
8.2 South Staff's District Council – no response received
8.3 Severn Trent Water – no objections. Include a condition that drainage details are submitted
8.4 Environment Agency – In the absence of a Flood Risk Assessment object and recommend refusal as the site lies within Flood Zone 1.
8.5 English Nature – Insufficient information submitted with the application to demonstrate whether or not the development would have an adverse effect on legally protected species. Therefore object and recommend refusal
8.6 Sport England (West Midlands) – no response received
9 Appraisal
9.1 The main issues in respect of this proposal are as follows:-
• Principle of Development • Impact on the Green Belt • Loss of Playing fields provision • Parking and Access • Flood Risk • Ecological Issues • Visual Impact • Planning Obligations
Principle of Development 9.2 The site is an established school/educational facility. The redevelopment of the site would therefore accord with UDP Policy C4 – Education Facilities which supports improvements of educational facilities in the City
Impact on the Green Belt 9.3 The site is a major developed site within the Green Belt. Unitary Development Plan Policy G1 states 'within the green belt, inappropriate development will not be permitted except in very special circumstances, where the harm caused is clearly outweighed by other considerations'.
9.4 As a major developed site, limited development is permissible within defined limits and subject to certain requirements; there should be no greater impact on the purposes of including land in the Green Belt than the last know use of the site and will not exceed the height of any existing buildings. There should be no increase above 10% in the developed area of the site (interpreted as footprint). The BSF proposals exceed these limits by 18%.
9 9.5 The BSF proposals will provide enhanced and improved education and sporting facilities which will be open to the community in line with the government’s extended schools agenda and significantly improve the environment by the provision of a purpose designed building and landscaped areas. Due to the scale and siting of the proposals, the development is defined in PPG2 as inappropriate development in the Green Belt. UDP Policy G1 recognises that in some very special circumstances, the harm caused to the Green Belt can be outweighed by other considerations. In this instance it is considered that the pressing nature of the BSF project, the absence of any alternatives, and local benefits associated with the proposals are compelling.
9.6 These benefits are considered to outweigh the potential harm to the Green Belt and planning permission should not be refused for this reason.
Loss of Playing Fields Provision 9.7 There are outstanding issues concerning the effect of the proposals on the existing playing field provision and a resolution to these issues may only be forthcoming through continued discussions with Sport England. Subject to no objection from Sport England the proposed sports pitch provision would be acceptable.
Parking and Access 9.8 Transport Assessment was submitted with the application. The report contains a number of errors and has been referred to the agent to comment. The development itself will not generate a significant number of additional car trips to the site, as a result the operation of the junctions in the area are unlikely to be significantly impacted. However, the free flow of traffic along the residential roads surrounding the school site is already restricted and would be further impacted by any increase in vehicle trips. The outstanding issues are regarding bus access to the site and should be clarified and the bus lay-bye altered appropriately. If the lay-bye is insufficient in length to accommodate all the likely buses accessing the school site, they are likely to block the proposed vehicle entrance for the relocated Pennfields School, and therefore delay the departure of the school minibuses.
9.9 The pedestrian footpath shown to the front of the site, within the school boundary has 2 significant conflict points with vehicles which would be unacceptable.
9.10 The proposed movement of service vehicles reversing down into the service area would likely be to the detriment of pedestrian safety within the site. The front of Highfields main entrance shows a wide footpath arching toward the entrance for Pennfields; directing pedestrians straight across the service access and only providing a significantly reduced footpath width on the opposite side.
9.11 A new path has been shown to the north of the site, providing access for pupils and should be included in any final design. In order to address the current issues along Boundary Way, it may be appropriate to provide safety engineering features. Both matters could be secured and funded through the Section 106 Agreement.
9.12 Subject to the issues being satisfactorily addressed there would be no objection on transport grounds.
Flood Risk 9.13 The site is located within a Flood Zone A and requires a Flood Risk Assessment (FRA) which was not submitted with the application which resulted in an objection from the Environment Agency. A FRA has now been submitted and is being considered by the Environment Agency (EA). Subject to the EA withdrawing their objection the proposal would be acceptable.
Ecological Issues 9.14 The application was not supported by an ecological survey. This has since been prepared and is being considered by nature conservation and Natural England (NE). Subject to NE withdrawing their objection the proposal would be acceptable subject to conditions.
10 Visual Impact 9.15 The proposed new building will be set back further into the site than the existing buildings. The maximum height of the new building would be 4 storeys which would not exceed the existing maximum height. The set back of the new building would therefore reduce the visual impact on residents in Boundary Way but would impact further on the openness and green belt towards the west of the site. This has been considered under the policy section and it is considered the harm on the green belt is outweighed by the benefits afforded the scheme, that amount to “very special circumstances” which justify the scheme.
9.16 The positioning of the new building is to prevent unnecessary disruption to the students of the school. The development should not be dominated by parking provided the frontage has a high quality landscaped design. The proposal is considered to be acceptable subject to a high quality landscape scheme.
Planning Obligations 9.17 For a development of this nature there will be a requirement for a financial contribution towards public art, targeted recruitment and training, highway improvements and travel plan.
10 Conclusion
10.1 The general principle of a new build school on this site is acceptable. The proposal would present a special case which would allow for building in the Green Belt and provided the flood risk, ecological and outstanding concerns about highways can be resolved there would be no objections.
10.2 For these reasons the proposal is considered acceptable subject to outstanding matters being resolved.
11 Recommendation
Delegated Authority to the Director of Sustainable Communities to forward the application to the Secretary of State as a major departure under the Green Belt Direction 2005 with a recommendation that outline consent be granted subject to The Secretary of State indicating no wish to intervene:
1. No objection from the EA in respect of the submitted Flood Risk Assessment 2. No major issues raised by outstanding consultees and any necessary amendments 3. Satisfactory resolution of outstanding highways and ecological issues 4. Negotiation and signing of a Section 106 Agreement to secure public art, highways contributions, travel plan and targeted recruitment and training 5. Conditions to include:
• Standard outline conditions – all matters reserved • Maximum building heights • Sustainable drainage • Waste management plan • Community use agreement • Full ecological survey • Tree survey • Landscaping • Construction management plan • Details of lighting • Division of playing fields • Cycle facilities • Bin stores • Ground Condition Survey
11 • Retention of hedgerows • Details of Boundary Treatment • Phasing • Bat survey and mitigation prior to demolition • Any other conditions raised by outstanding consultees
Case Officer : Jenny Davies Telephone No : 555608 Head of Development Control – Stephen Alexander
12
DO NOT SCALE Reproduced from the Ordnance Survey mapping with the permission of the Controller of Her Majesty’s Stationery Office © Crown Copyright. Wolverhampton CC Licence No 100019537. Unauthorised reproduction infringes Crown copyright and may lead to prosecution or civil proceedings.
Planning Application No: 08/01248/DWO Location Highfields School, Boundary Way,Merry Hill,Wolverhampton Plan Scale (approx) 1:1250 National Grid Reference SJ 388140 296399 Plan Printed 07.11.2008 Application Site Area 79812m2
13
PLANNING COMMITTEE - 18-Nov-08 APP NO: 08/01249/DWO WARD: Oxley DATE: 02-Oct-08 TARGET DATE: 01-Jan-09 RECEIVED: 01.10.2008 APP TYPE: Outline Deemed Plan Permission WCC
SITE: North Wolverhampton Academy, Marsh Lane, Wolverhampton, West Midlands PROPOSAL: Outline application. A new academy school building retaining existing sports hall and changing block. Demolition of the remaining school and Poplar House, existing community centre to be retained. (Amended Plans)
APPLICANT: AGENT: Mr Richard Hill Mr Ian Naylor Director Or Customer And Shared Services Jacobs Engineering UK Ltd Wolverhampton City Council Sheldon Court Civic Centre Wagon Lane St Peters Square Coventry Road Wolverhampton Sheldon WV1 1SH Birmingham B1 1TT
COMMITTEE REPORT:
1 Site Description
1.1 This is an established school site known as Pendeford Business and Enterprise College and located approx 3 km north of Wolverhampton City Centre with access from Marsh Lane. The site is surrounded to the north, east and west by residential properties with Rakegate Junior School directly adjoining the school playing fields to the south-east corner of the site. The site is adjoined on the western boundary by the Staffs and Worcester Canal which is a conservation area.
1.2 The site comprises 18.5 hectares and is a major developed site located within the Green Belt and has no changes in levels.
1.3 The site comprises a mix of buildings of varying architectural style and quality including the three storey modernist building built in 1964 located set back into the site towards the west boundary with recent extensions to provide a sports hall and changing room facilities. Also the 1950s three storey school building now used for Adult education purposes and offices and referred to as Poplar House. Other buildings on site include a single storey community centre and single storey out buildings on the northern boundary which includes an area of community recycling.
1.4 There are two existing vehicular accesses to the site; one to serve each of the existing schools and mature established trees on the frontage and located across the site. The vehicular access to Pendeford School is adjacent a two storey caretakers house.
2 Application details
2.1 The application is submitted as part of the Building for Schools initiative (BSF) which is a central government scheme providing funding to rebuild and refurbish all secondary schools in England over a 10-15 year period.
14 2.2 The application is in outline with all matters reserved. Indicative drawings have been submitted which propose the demolition Poplar House, the three storey building used for adult education purposes and demolition of approx 70% of the Pendeford School building retaining the sports hall and rebuilding the school which would be a maximum of 3 storeys in height. The school would be positioned in the same location as the existing school and would not extend outside its major developed site boundary.
2.3 Parking for the school would be in the location of the demolished Poplar House. The existing access adjacent the caretakers’ house would be moved approx 15m south and would be a service and pedestrian entrance only. The existing vehicle access serving Poplar House would remain unchanged.
2.4 The North Wolverhampton Academy will be created to replace Pendeford Business and Enterprise College and Northicote School located 1.2km to the east in Bushbury.
3 Planning History
3.1 No relevant history
4 Relevant Background
4.1 Background to the BSF programme
(i) Improving educational attainment in Wolverhampton is central to the long term sustained regeneration of the City. The existing secondary educational infrastructure in the City is becoming increasingly outdated to meet modern needs, and unless the scale of investment set out in the BSF programme is realised, then the City will fall further behind.
(ii) Whilst the adopted UDP recognises the importance of improved education facilities to the development of the City (policies C1 and C4 in particular), it pre-dates the BSF programme and does not anticipate the scale of investment in education infrastructure proposed.
(iii) The supporting information submitted with the application points to more recent policy initiatives and specifically outlines the challenge outlined in the Black Country Study to improve the performance of young people at GCSE level and to increase the numbers continuing with post -16 education. The BSF programme has been closely linked to regeneration policies set out in the Black Country Joint Core Strategy Preferred options Report (March 2008). Core Policy Area 11 (Community and Sports Facilities) promotes the sustainable location of such facilities and promotes their development and protection. There is specific acknowledgment of the important role of secondary schools in the provision of sports and recreation facilities (paragraph 6.48) which is embodied in the BSF programme. The Outline Business Case for the Wolverhampton Building Schools for the Future programme recently submitted to DCSF therefore indicates specifically that the BSF programme contributes to the wider regeneration proposals for the City.
5 Constraints
5.1 Conservation Area - : Staffs/Worcs & Shropshire Union Canal Conservation Area Current Open Space - Renton Road Play Area and Open Space Major Developed Site in the Green Belt
15 6 Relevant policies
6.1 National Policies PPS1 - Delivering Sustainable Development PPS9 - Biodiversity and Geological Conservation PPG13 - Transport PPG17 - Planning for Open Space, Sport and Recreation
6.2 Regional Policy RSS11 – Regional Spatial Strategy for the West Midlands
6.3 Relevant UDP Policies AM1 - Access, Mobility and New Development AM7 - Travel Plans AM9 - Provision for Pedestrians AM10 - Provision for Cyclists AM12 - Parking and Servicing Provision AM15 - Road Safety and Personal Security C1 - Health, Education and Other Community Services C4 - Education Facilities D1 - Design Quality D3 - Urban Structure D4 - Urban Grain D5 - Public Realm Public Open Private Space D6 - Townscape and Landscape D7 - Scale - Height D8 - Scale - Massing D9 - Appearance D10 - Community Safety D12 - Nature Conservation and Natural Features D13 - Sustainable Development Natural Energy D14 - The Provision of Public Art EP4 - Light Pollution EP5 - Noise Pollution EP6 - Protection of Ground Water, Watercourses, Canals EP7 - Protection of Floodplains EP9 - Sustainable Drainage Arrangements for Development G1 - Protection of the Green Belt G2 - Control of Development in the Green Belt G3 - Con. of Dev. Conspicuous from the Green Belt G4 - Major Developed Sites in the Green Belt N1 - Promotion of Nature Conservation N7 - The Urban Forest N9 - Protection of Wildlife Species R1 - Local Standards for Open Space, Sport R2 - Open Space, Sport and Recreation Priority Areas R3 - Protection of Open Space, Sport and Recreation R5 - Sports Grounds R8 - Dual-Use of Open Space, Sport and Recreation
7 Publicity
7.1 The application was advertised in the Express & Star newspaper and by site notices
7.2 Neighbour letters were sent and one letter of objection was received. Philip Bryett, a neighbour who has requested to speak to Planning Committee. The following is a summary of concerns: -
16 • health and safety issues • increase in vehicles and noise • pedestrian crossing • parking and access, drop off and coaches • expansion of hours • increase in pupil numbers
7.3 The consultation exercise undertaken by the BSF team produced comments from 5 residents whose children attended Northicote School and their concerns about travel arrangements for children to the new North Wolverhampton Academy and concern about the proposed use of the Northicote site once the school had closed.
8 Internal consultees
8.1 Transportation – The trips generated as a result of this proposal are likely to be relatively low in comparison to existing traffic on this section of the transport network. The assessment of the three junctions affected shows overall very little impact and therefore there would be no objection to the outline proposal provided any impact that may contribute to issues at these junctions is addressed at reserved matter stage.
Visibility splays are required for the new access and cycle parking for staff and pupils should be provided.
8.2 Conservation – no objections to demolition and proposed new build is unlikely to adversely affect the conservation area.
8.3 Planning Policy –
(i) Wolverhampton’s Unitary Development Plan 2006 Policy G1 states “Within the Green Belt, inappropriate development will not be permitted except in very special circumstances, where the harm caused is clearly outweighed by other considerations.
(ii) Policy G4 states “Within designated major developed sites in the Green Belt, re-use of buildings, limited infilling and redevelopment will be permitted where it can be shown that the proposed development will: Have no greater impact on the purposes of including land in the development than the last known use of the site: and will not exceed the height of any existing building’.
(iii) Any infill development should not, either in itself or cumulatively, lead to a major (greater than 10%) increase over and above the original developed area of the site.
(iv) Any complete or partial redevelopment should result in environmental improvements and should not occupy a larger area than the buildings which previously occupied the site, unless this would achieve a reduction in height which benefits visual amenity.”
8.4 Parks & Contracts (Leisure) - the proposal involves a reduction in outdoor pitches from 17 to 12 which would include 3 junior pitches, 1 rugby pitch, football grids, cricket nets, straight running track and 2 rounder pitches which would be unacceptable and should be resolved.
The proposed layout which would result in the loss of the best football pitch, an inappropriately located senior football pitch, poor relocation of hard surfaced courts, inappropriate location of mini pitches. Key areas should be maintained as playing fields and the location of the path linking the school with Rakegate School should not be agreed until the layout of the sports pitches is decided.
17 9 External consultees
9.1 Local And Neighbourhood Arrangements – no response received
9.2 South Staff's District Council – no response received
9.3 British Waterways - no objections subject to conditions in respect of levels, details of lighting, landscaping, boundary treatments, disposal of waste during demolition, details of surface water run-off
9.4 Environment Agency – The site lies within flood zone 1 and in the absence of a flood risk assessment (FRA) object to the proposal.
9.5 English Nature – objects to the proposal as the application includes insufficient survey information in particular reference to voles and bats.
9.6 Sport England (West Midlands) – no response received.
10 Appraisal
10.1 The main issues in respect of this proposal are as follows:- • Principle of Development • Impact on the Green Belt • Loss of Playing fields provision • Parking and Access • Flood Risk • Ecological Issues • Visual Impact • Planning Obligations
Principle of Development 10.2 The site is an established school/educational facility. The redevelopment of the site would therefore accord with UDP Policy C4 – Education Facilities which supports improvements of educational facilities in the City
Impact on the Green Belt 10.3 The site is a major developed site within the Green Belt. Unitary Development Plan Policy G1 states 'within the green belt, inappropriate development will not be permitted except in very special circumstances, where the harm caused is clearly outweighed by other considerations'. As a major developed site, limited development is permissible within defined limits and subject to certain requirements; there should be no greater impact on the purposes of including land in the Green Belt than the last know use of the site and will not exceed the height of any existing buildings. There should be no increase above 10% in the developed area of the site (interpreted as footprint).
10.4 The BSF proposals will provide enhanced and improved education and sporting facilities which will be open to the community in line with the government’s extended schools agenda and significantly improve the environment by the provision of a purpose designed building and landscaped areas.
10.5 The proposal involves the closure of Northicote School and relocation of the pupils to this site. Northicote School which is not in the Green Belt, occupies a site of approximately 47,400 sq metres. The grounds of the main school site are adjacent to Northwood Park. The school has a separate sports field which is located approximately 300 metres from the school. Pendeford Business and Enterprise College is situated on a multi user site in the Green Belt at Marsh Lane, with a site area of almost 186,000 sq metres. Clearly from the figures quoted above, the Pendeford site is the only one which is large enough to accommodate the Academy. The proposals for building the North Wolverhampton Academy would have required a 100% new build
18 if it were to be built on the Northicote site, which is not in the Green Belt. Building on the Pendeford site, however, required a 76% new build due to the retention of the recently constructed sports and changing facilities and the recently opened Diploma Learning Centre. This represents a capital cost saving of just over £4m and is significant in relation to the overall affordability of the city’s BSF programme.
10.6 The development of the Academy takes place within the existing boundary of the Major Developed Site at Pendeford. The development will see the existing Poplar House building being used for decant during the build process and after build completion it is schedule for demolition. The residual land will be used for car parking and landscaping. It is believed that the benefits to the community outweigh the considered deficiencies of retaining the existing inefficient, uncoordinated and unsightly buildings. However, the new building would not exceed the height of the existing school and would be within the major developed site boundary. Inappropriate development in the Green Belt is contrary to UDP Policy G4. UDP Policy G1 recognises that in some very special circumstances, the harm caused to the Green Belt can be outweighed by other considerations. In this instance it is considered that the pressing nature of the BSF project, the absence of any alternatives, and local benefits associated with the proposals are compelling.
10.7 These benefits are considered to outweigh the potential harm to the Green Belt and planning permission should not be refused for this reason.
Loss of Playing Fields Provision 10.8 There are outstanding issues concerning the effect of the proposals on the existing playing field provision and a resolution to these issues may only be forthcoming through continued discussions with Sport England. Subject to no objection from Sport England the proposed sports pitch provision would be acceptable.
Parking and Access 10.9 The submitted application included a Transport Assessment which contained a number of errors which have been referred to the agent to clarify. Subject to clarification of these figures there would be no objection on highway grounds to the outline application.
10.10 The assessment of the three junctions affected shows overall very little impact and therefore there would be no objection to the outline proposal provided any impact that may contribute to issues at these junctions is addressed at reserved matter stage.
10.11 Details of visibility splays for the new access and cycle parking should be provided at the detailed stage.
Flood Risk 10.12 The site is located within a Flood Zone 1 and requires a Flood Risk Assessment (FRA) which was not submitted with the application which resulted in an objection from the Environment Agency (EA). An FRA is required and subject to the EA withdrawing their objection the proposal would be acceptable.
Ecological Issues 10.13 The application was not supported by an ecological survey which is required. The agent has been requested to provide this outstanding information which is still outstanding. On receipt of the survey nature conservation and Natural England will be consulted and subject to NE withdrawing their objection the proposal would be acceptable subject to conditions.
Visual Impact 10.14 The proposal would result in a new school building located in a similar location and of a similar scale to the existing school. The school would be located in the Green Belt but would not extend outside the boundary of the major developed site. This would therefore have no adverse effect on the surrounding residents or impact significantly on the openness of the Green Belt.
19 10.15 The proposed layout would unfortunately result in a building set back into the site which would have limited impact on the street scene. The new school should ideally be located on the road frontage to provide a continuous built up. However, in this case the existing trees along the frontage define the street scene. Also a large institutional building in this semi-detached residential area may be successful as a ‘pavilion’ type building providing the quality of the landscaping is very high quality. In this respect it will be particularly important to ensure that any frontage parking is not overdominant. Any detailed layout should accord with the Design Policies D1-D9 of the UDP
Planning Obligations 10.16 For a development of this nature there will be a requirement for a financial contribution towards public art, targeted recruitment and training, highway improvements and travel plan.
11 Conclusion
11.1 The general principle of a new build school on this site is acceptable. The proposal would present a special case which would allow for building in the Green Belt and provided the flood risk, ecological and outstanding concerns about highways can be resolved there would be no objections.
11.2 For these reasons the proposal is considered acceptable subject to outstanding matters being resolved.
12 Recommendation
Delegated Authority to the Director of Sustainable Communities to forward the application to the Secretary of State as a major departure under the Green Belt Direction 2005 with a recommendation that outline consent be granted subject to The Secretary of State indicating no wish to intervene:
1. No objection from the EA in respect of the submitted Flood Risk Assessment 2. No major issues raised by outstanding consultees and any necessary amendments 3. Satisfactory resolution of outstanding highways and ecological issues 4. Negotiation and signing of a Section 106 Agreement to secure public art, highways contributions, travel plan and targeted recruitment and training 5. Conditions to include: • Standard outline conditions – all matters reserved • Maximum building heights • Sustainable drainage • Waste management plan • Community use agreement • Full ecological survey • Tree survey • Landscaping • Construction management plan • Details of lighting • Division of playing fields • Cycle sheds • Bin stores • Ground Condition Survey • Retention of hedgerows • Retention of Hepworth statue • Details of Boundary Treatment • Phasing • Bat survey prior to demolition • Any other conditions raised by outstanding consultees • Details of relocation of community recycling • visibility splays
20
Case Officer : Jenny Davies Telephone No : 555608 Head of Development Control – Stephen Alexander
DO NOT SCALE Reproduced from the Ordnance Survey mapping with the permission of the Controller of Her Majesty’s Stationery Office © Crown Copyright. Wolverhampton CC Licence No 100019537. Unauthorised reproduction infringes Crown copyright and may lead to prosecution or civil proceedings.
Planning Application No: 08/01249/DWO Location North Wolverhampton Academy, Marsh Lane,Wolverhampton,West Midlands Plan Scale (approx) 1:5000 National Grid Reference SJ 390658 302740 Plan Printed 07.11.2008 Application Site Area 185177m2
21
PLANNING COMMITTEE - 18-Nov-08 APP NO: 08/01247/DWO WARD: East Park DATE: 02-Oct-08 TARGET DATE: 01-Jan-09 RECEIVED: 01.10.2008 APP TYPE: Outline Deemed Plan Permission WCC
SITE: Deansfield High School, Deans Road, Wolverhampton, West Midlands PROPOSAL: Outline application for minor demolitions and alterations to the existing school and the construction of a new performing arts facility and other minor additions
APPLICANT: AGENT: Mr Richard Hill Mr Ian Naylor Director Or Customer And Shared Services Jacobs Engineering UK Ltd Wolverhampton City Council Sheldon Court Civic Centre Wagon Lane St Peters Square Coventry Road Wolverhampton Sheldon WV1 1SH Birmingham B1 1TT
COMMITTEE REPORT:
1 Site Description
1.1 This is an established school site located approx 3km east of Wolverhampton City Centre with access from Deans Road. The site which is 7.6 hectares is bounded on the north, east and part of the southern boundary by a Site for Nature Conservation (SLINC). The site is joined on part of the southern and west boundary by residential properties.
1.2 The site comprises various styles and age of additions but the main building constructed of yellow brick is a maximum of 2.5 storeys high (10m). The main school building is set back from the road with a landscaped frontage. There are two existing vehicular access points (one to staff car park and one to visitor car park).
2 Application details
2.1 The proposal involves two minor demolitions towards the north of the site (small gymnasium and changing area). A new building to provide a drama/theatre space would be located at the front of the school forward of the existing school buildings at a maximum height of 4.5m. An existing pedestrian access located in the centre of the site would be improved and extended with a covered canopy. The main teaching block would be extended further back into the site to a height of 10m to match the existing height. Other additions would be single storey in height but would be contained within the existing envelope of the building.
3 Planning History
3.1 No relevant history
22 4 Constraints
4.1 Authorised Process Current Open Space Landfill Gas Zone Millennium Urban Forest Mining Areas Site of Local Importance for Nature Conservation
5 Relevant Background
5.1 Background to the BSF programme
(i) Improving educational attainment in Wolverhampton is central to the long term sustained regeneration of the City. The existing secondary educational infrastructure in the City is becoming increasingly outdated to meet modern needs, and unless the scale of investment set out in the BSF programme is realised, then the City will fall further behind.
(ii) Whilst the adopted UDP recognises the importance of improved education facilities to the development of the City (policies C1 and C4 in particular), it pre-dates the BSF programme and does not anticipate the scale of investment in education infrastructure proposed.
(iii) The supporting information submitted with the application points to more recent policy initiatives and specifically outlines the challenge outlined in the Black Country Study to improve the performance of young people at GCSE level and to increase the numbers continuing with post -16 education. The BSF programme has been closely linked to regeneration policies set out in the Black Country Joint Core Strategy Preferred options Report (March 2008). Core Policy Area 11 (Community and Sports Facilities) promotes the sustainable location of such facilities and promotes their development and protection. There is specific acknowledgment of the important role of secondary schools in the provision of sports and recreation facilities (paragraph 6.48) which is embodied in the BSF programme. The Outline Business Case for the Wolverhampton Building Schools for the Future programme recently submitted to DCSF therefore indicates specifically that the BSF programme contributes to the wider regeneration proposals for the City.
6 Relevant policies
6.1 National Policies PPS1 - Delivering Sustainable Development PPS9 - Biodiversity and Geological Conservation PPG13 - Transport PPG17 - Planning for Open Space, Sport and Recreation
6.2 Regional Policy RSS11 – Regional Spatial Strategy for the West Midlands
6.3 Relevant UDP Policies AM1 - Access, Mobility and New Development AM7 - Travel Plans AM9 - Provision for Pedestrians AM10 - Provision for Cyclists AM12 - Parking and Servicing Provision AM15 - Road Safety and Personal Security C1 - Health, Education and Other Community Services C4 - Education Facilities D1 - Design Quality D3 - Urban Structure
23 D4 - Urban Grain D5 - Public Realm Public Open Private Space D6 - Townscape and Landscape D7 - Scale - Height D8 - Scale - Massing D9 - Appearance D10 - Community Safety D12 - Nature Conservation and Natural Features D13 - Sustainable Development Natural Energy D14 - The Provision of Public Art EP4 - Light Pollution EP5 - Noise Pollution EP6 - Protection of Ground Water, Watercourses, Canals EP7 - Protection of Floodplains EP9 - Sustainable Drainage Arrangements for Development N1 - Promotion of Nature Conservation N7 - The Urban Forest N9 - Protection of Wildlife Species R1 - Local Standards for Open Space, Sport R2 - Open Space, Sport and Recreation Priority Areas R3 - Protection of Open Space, Sport and Recreation R5 - Sports Grounds R8 - Dual-Use of Open Space, Sport and Recreation
6 Publicity
6.1 The application was advertised in the Express & Star newspaper and by site notices
6.2 Neighbour letters were sent and no letters of objection have been received.
6.3 A consultation exercise was undertaken by the BSF team which produced no comments.
7 Internal consultees
7.1 Transportation – The Transport Statement was submitted with the application which included a number of inaccuracies which have since been referred to the transport consultant and have been clarified. Therefore the redevelopment of Deansfield School will not have a material impact on the local highway network, public transport or cycling
7.2 Building Control – appears satisfactory
7.4 Environmental Services – Some of the existing school buildings and most of the associated playing fields are situated above a former domestic waste landfill site. Therefore suitable gas protection measures should be installed.
7.5 Landscape – Nature Conservation – No objections. The proposal will have a limited impact on biodiversity but there are considerable opportunities to improve and enhance the wildlife situation and prior to development/demolition further surveys and an extended phase 1 ecological survey is required prior to commencement of the works.
8 External consultees
8.1 Local And Neighbourhood Arrangements – no response received
8.2 Severn Trent Water – no objection subject to condition for sustainable drainage details
24
8.3 Environment Agency – no response received
8.4 Sport England (West Midlands) – no response received
9 Appraisal
9.1 The main issues in respect of this proposal are as follows:-
• Principle of Development • Loss of Playing fields provision • Parking and Access • Ecological Issues • Visual Impact
Principle of Development 9.2 The site is an established school/educational facility. The redevelopment of the site would therefore accord with UDP Policy C4 – Education Facilities which supports improvements of educational facilities in the City
Loss of playing fields provision 9.3 The proposal would not result in any loss of sports pitches. At present one senior football pitch is available for community use and this should continue to be the case. Therefore the proposal would accord with UDP Policy R5 and is therefore acceptable.
Parking and Access 9.4 There is not expected to be any additional traffic or parking demand to be generated as a result of the proposal. Therefore the redevelopment of Deansfield School will not have a material impact on the local highway network, public transport or cycling.
Ecological Issues 9.5 The site is located adjacent a Site of Local Importance for Nature Conservation (SLINC) However, there is considered to be no detriment provided conditions are included that ecological surveys are undertaken at the reserved matters stage.
Visual Impact 9.6 The proposal would involve an extension forward of the existing building. The principle of this would be acceptable and subject to detailed design could create a new focal point to the school. The improved pedestrian access from the road at a central point with a new canopy will separate pedestrians from vehicles which is welcomed.
9.7 The proposed extensions to the existing main teaching block would be of a scale appropriate with the existing building. The heights would not exceed the existing height and the extensions would be set away from boundaries with residential properties.
10 Conclusion
10.1 The general principle of the extensions to the existing school is acceptable subject to no further objections from outstanding consultees.
25 11 Recommendation
12.1 Delegated Authority to grant outline consent subject to:
1. No objection from the EA in respect of the submitted Flood Risk Assessment 2. No major issues raised by outstanding consultees and any necessary amendments 3. Conditions to include:
• Standard outline conditions – all matters reserved • Maximum building heights • Sustainable drainage • Waste management plan • Community use agreement • Full ecological survey • Tree survey • Landscaping • Construction management plan • Details of lighting • Cycle sheds • Bin store • condition visibility splays • materials • layout car park • Gas protection measures • Travel plan • Public art • Any other conditions raised by outstanding consultations
Case Officer : Jenny Davies Telephone No : 555608 Head of Development Control – Stephen Alexander
26
DO NOT SCALE Reproduced from the Ordnance Survey mapping with the permission of the Controller of Her Majesty’s Stationery Office © Crown Copyright. Wolverhampton CC Licence No 100019537. Unauthorised reproduction infringes Crown copyright and may lead to prosecution or civil proceedings.
Planning Application No: 08/01247/DWO Location Deansfield High School, Deans Road,Wolverhampton,West Midlands Plan Scale (approx) 1:5000 National Grid Reference SJ 394166 298641 Plan Printed 07.11.2008 Application Site Area 76251m2
27
PLANNING COMMITTEE - 18-Nov-08 APP NO: 08/01245/DWO WARD: Heath Town DATE: 01-Oct-08 TARGET DATE: 31-Dec-08 RECEIVED: 01.10.2008 APP TYPE: Outline Deemed Plan Permission WCC
SITE: Heath Park Business And Enterprise College, Prestwood Road, Wolverhampton, West Midlands PROPOSAL: Outline Application. Demolition of existing school building and proposed replacement school building with associated car parking and sports facilities.
APPLICANT: AGENT: Mr Richard Hill Mr David Onions Director Or Customer And Shared Services Pegasus Planning Group Wolverhampton City Council 5 The Priory Civic Centre Old London Road St Peters Square Canwell Wolverhampton Sutton Coldfield WV1 1SH B75 5SH
COMMITTEE REPORT:
1 Site Description
1.1 This site is an established school site located approx 3km north-east of Wolverhampton City Centre. The school entrance is accessed from Prestwood Road with a small parking area for staff and visitors. A vehicular access exists further along Prestwood Road where the majority of staff park on what was previously a games court. There is a service access to the south of the site adjacent 1 Coronation Road.
1.2 The application site which is ‘U’ shaped and approx 3.4 hectares is an amalgamation of various extensions which have taken place to the original Edwardian school building which is situated in the southern corner of the site and fronts Prestwood Road and Coronation Road. The site itself contains the original two storey red brick school building, a three story sports hall and modern two storey flat roof additions. The majority of the site contains buildings or hard surfaces.
1.3 Directly to the east is New Cross Hospital and to the north an access road which allows vehicles to leave the New Cross Hospital site but restricts access into the site. The site is surrounded to the east and south by residential properties of varying age and styles.
1.4 On the southern and part of the western boundary of the site are wall and railings which form the original boundary treatment.
2 Application details
2.1 The application is submitted as part of the Building for Schools initiative (BSF) which is a central government scheme providing funding to rebuild and refurbish all secondary schools in England over a 10-15 year period.
2.2 The application is in outline with all matters reserved. Indicative drawings have been submitted which propose the demolition all the buildings on site and rebuild a new school towards the north
28 of the site. The building would have a maximum height of two storey on the frontage (Prestwood Road) and increasing in height towards the rear of the site.
2.3 The proposed redevelopment would provide grass pitches and generally improved leisure facilities.
2.4 A parking area for staff and visitors would be provided off the existing access on Prestwood Road.
3 Planning History
3.1 No relevant planning history
4 Relevant Background
4.1 Background to the BSF programme
4.2 Improving educational attainment in Wolverhampton is central to the long term sustained regeneration of the City. The existing secondary educational infrastructure in the City is becoming increasingly outdated to meet modern needs, and unless the scale of investment set out in the BSF programme is realised, then the City will fall further behind.
4.3 Whilst the adopted UDP recognises the importance of improved education facilities to the development of the City (policies C1 and C4 in particular), it pre-dates the BSF programme and does not anticipate the scale of investment in education infrastructure proposed.
4.4 The supporting information submitted with the application points to more recent policy initiatives and specifically outlines the challenge outlined in the Black Country Study to improve the performance of young people at GCSE level and to increase the numbers continuing with post -16 education. The BSF programme has been closely linked to regeneration policies set out in the Black Country Joint Core Strategy Preferred options Report (March 2008). Core Policy Area 11 (Community and Sports Facilities) promotes the sustainable location of such facilities and promotes their development and protection. There is specific acknowledgment of the important role of secondary schools in the provision of sports and recreation facilities (paragraph 6.48) which is embodied in the BSF programme. The Outline Business Case for the Wolverhampton Building Schools for the Future programme recently submitted to DCSF therefore indicates specifically that the BSF programme contributes to the wider regeneration proposals for the City.
5 Constraints
5.1 Authorised Processes - 250m zone around Authorised Processes at New Cross Incinerator
6 Relevant policies
6.1 National Policies PPS1 - Delivering Sustainable Development PPS9 - Biodiversity and Geological Conservation PPG13 - Transport PPG17 - Planning for Open Space, Sport and Recreation
6.2 Regional Policies RSS11 – Regional Spatial Strategy for the West Midlands
29 6.3 Relevant UDP Policies AM1 - Access, Mobility and New Development AM7 - Travel Plans AM9 - Provision for Pedestrians AM10 - Provision for Cyclists AM12 - Parking and Servicing Provision AM15 - Road Safety and Personal Security C1 - Health, Education and Other Community Services C4 - Education Facilities D1 - Design Quality D3 - Urban Structure D4 - Urban Grain D5 - Public Realm Public Open Private Space D6 - Townscape and Landscape D7 - Scale - Height D8 - Scale - Massing D9 - Appearance D10 - Community Safety D12 - Nature Conservation and Natural Features D13 - Sustainable Development Natural Energy D14 - The Provision of Public Art EP4 - Light Pollution EP5 - Noise Pollution EP6 - Protection of Ground Water, Watercourses, Canals EP7 - Protection of Floodplains EP9 - Sustainable Drainage Arrangements for Development N1 - Promotion of Nature Conservation N7 - The Urban Forest N9 - Protection of Wildlife Species R1 - Local Standards for Open Space, Sport R2 - Open Space, Sport and Recreation Priority Areas R3 - Protection of Open Space, Sport and Recreation R5 - Sports Grounds R8 - Dual-Use of Open Space, Sport and Recreation
7 Publicity
7.1 The application was advertised in the Express & Star newspaper and by site notices
7.2 Neighbour letters were sent and four letters of objection have been received. The concerns primarily relate to traffic issues and parking which is a major problem in the area. A petition of 24 signatures was received which objects to the proposal on the grounds of inadequate parking facilities.
7.3 A letter has been received from New Cross hospital which raises a number of issues in respect of transportation issues, the height of the new building should not exceed the newly constructed Cardiac Centre which is three storey, details of acoustic measures in respect of the sports facilities, elevational treatment should be complimentary to existing built form, consideration of security issues.
7.4 The consultation exercise undertaken by the BSF team produced comments from 2 residents. One resident requests new boundary treatment and the other has concerns about health and safety of pupils while building is taking place and lack of parking provision.
30 8 Internal consultees
8.1 Transportation – The amended response is now satisfactory and therefore the proposal is unlikely to have a material impact on the local highway. However, the lack of crossing facilities at the junction of Prestwood Road/Thorneycroft Lane is a significant safety issue for pupils and as part of mitigation for this development, contribution toward an appropriate improvement at this location is required with further contribution toward localised improvements around the school site, including the potential provision of tactile paving at crossing points.
Appropriate visibility splays for pedestrians and vehicles should be provided at the site access and service vehicle access to and manoeuvring within the site demonstrated using Auto Track.
Separate pedestrian and vehicle access should be provided
Bin stores and cycle storage details also required
8.2 Parks & Contracts (Leisure) – The proposal will provide much needed grass pitches which are currently lacking. Although the proposal will result in the loss of a Floodlit Artificial Turf Pitch (ATP) it is in a poor state of repair. Some high ball netting will be required bordering the central sports pitch adjoining 4-7 inc. Hazelwood Drive
9 External consultees
9.1 Local And Neighbourhood Arrangements – no response received
9.2 Severn Trent Water – no objection. Include a condition that drainage details are submitted
9.3 Environment Agency- In the absence of a Flood Risk Assessment object as the site lies within Flood Zone 1.
9.4 Sport England (West Midlands) – no response received
10 Appraisal
10.1 The main issues in respect of this proposal are as follows: - • Principle of Development • Loss of Playing Field Provision • Parking and Access • Flood Risk • Visual Impact • Planning Obligations
Principle of Development 10.2 The site is an established school/educational facility. The redevelopment of the site would therefore accord with UDP Policy C4 – Education Facilities which supports improvements of educational facilities in the City.
Loss of Playing Field Provision 10.3 The proposal would involve the loss of a flood lit hard court however, the redevelopment would provide much needed grass pitches which would be acceptable and would accord with UDP Policy R5 which supports sports facilities which are of sufficient benefit to the development to outweigh the loss.
Parking and Access 10.4 The submitted Transport Statement has satisfactorily addressed the parking and access issues.
31 Flood Risk 10.5 The site is located within an area of low risk of flooding however as the site area exceeds one hectare a flood risk assessment is required. A Flood Risk Assessment has been requested and on receipt will be forwarded to the Environment Agency for comment. Subject to no objections from the EA there would be no objections
Visual Impact 10.6 The scale of the proposed development has been design to take account of its surroundings. The indicative building blocks would take account of the surroundings. The two storey element on the frontage would be of a similar scale to the residential houses. The height of the buildings would increase towards the rear of the site towards the east where it adjoins New Cross Hospital which has three storey buildings closest to the boundary with the application site although these are set back significantly.
10.7 The loss of the existing sports hall directly at the rear of properties in Hazelwood Drive would improve the outlook for these residents significantly.
Planning Obligations 10.7 For a development of this nature there will be a requirement for a financial contribution towards public art, targeted recruitment and training, highway improvements and travel plan.
11 Conclusion
11.1 The general principle of a new build school on this site is acceptable; provided the flood risk issue can be resolved there would be no objections.
11.2 For these reasons the proposal is considered acceptable subject to outstanding matters being resolved
12 Recommendation
12.1 Delegated Authority to grant outline consent subject to:
1. No objection from the EA in respect of the submitted Flood Risk Assessment 2. No major issues raised by outstanding consultees and any necessary amendments 3. Negotiation of a Section 106 Agreement to secure public art, highways contributions, travel plan and targeted recruitment and training 4. Conditions to include:
• Standard outline conditions – all matters reserved • Maximum building heights • Sustainable drainage • Waste management plan • Community use agreement • Full ecological survey • Tree survey • Landscaping • Construction management plan • Details of lighting • Division of playing fields • Cycle sheds • Bin stores • Ground Condition Survey • Retention of hedgerows • Details of Boundary Treatment
32 • Phasing • Bat survey prior to demolition • Any other conditions raised by outstanding consultations • condition visibility splays • security measures • materials • layout car park • high ball netting
Case Officer : Jenny Davies Telephone No : 555608 Head of Development Control – Stephen Alexander
33
DO NOT SCALE Reproduced from the Ordnance Survey mapping with the permission of the Controller of Her Majesty’s Stationery Office © Crown Copyright. Wolverhampton CC Licence No 100019537. Unauthorised reproduction infringes Crown copyright and may lead to prosecution or civil proceedings.
Planning Application No: 08/01245/DWO Location Heath Park Business And Enterprise College, Prestwood Road,Wolverhampton,West Midlands Plan Scale (approx) 1:5000 National Grid Reference SJ 393339 300209 Plan Printed 07.11.2008 Application Site Area 33942m2
34
APP NO: 08/01246/DWO WARD: Tettenhall Regis DATE: 02-Oct-08 TARGET DATE: 01-Jan-09 RECEIVED: 01.10.2008 APP TYPE: Outline Deemed Plan Permission WCC
SITE: The Kings School, Regis Road, Wolverhampton, West Midlands PROPOSAL: Outline application for a new special school co located with the existing Kings Secondary School. Minor demolitions and refurbishment of the existing school
APPLICANT: AGENT: Mr Richard Hill Mr Ian Naylor Director Or Customer And Shared Services Jacobs Engineering UK Ltd Wolverhampton City Council Sheldon Court Civic Centre Wagon Lane St Peters Square Coventry Road Wolverhampton Sheldon WV1 1SH Birmingham B1 1TT PLANNING COMMITTEE - 18-Nov-08
COMMITTEE REPORT:
1 Site Description
1.1 This is an established school site located towards the west of the City with access from Regis Road which is a road with a footpath on one side only. The site which is 9.1 hectares is surrounded to the north and west by housing and to the south by recreational open space and a site of local importance for nature conservation (SLINC) known as Land at Penk Rise. On the opposite side of the road to the north are allotments.
1.2 The site comprises a mix of buildings of varying age, style and height. The main buildings are towards the front of the site (the north-east) and comprise a 1950s original school building forming a central 3 storey block with flat roof and telecommunications equipment and two storey and single storey buildings towards the rear and side of the site. An impressive arch roofed part of the building fronts the road.
1.3 There are level changes across the site with the land sloping down from north-east to south-west.
1.4 There is a one vehicular access to the site leading to the parking area for staff and pedestrian entrance located centrally within the frontage to Regis Road.
2 Application details
2.1 The application is submitted as part of the Building for Schools initiative (BSF) which is a central government scheme providing funding to rebuild and refurbish all secondary schools in England over a 10-15 year period.
2.2 The application is in outline with all matters reserved. Indicative drawings have been submitted which propose the demolition of parts of the existing Kings School site, technology building and part of the art block which are single storey buildings on the west side of the site to provide parking. The indicative scheme proposal provides conflicting information in respect of the
35 proposed extensions to the building. However the extensions would be no more than 3 storeys in height which is the no higher than the existing building height.
2.3 The application would include the co-location of Tettenhall Special School on the site. The new school building would be attached to the Kings School and would be single storey in height and located in the east corner of the site which is an area currently occupying mini soccer pitches and tennis courts. Access would be from an existing vehicle access with vehicles entering to drop off pupils. No car parking has been identified on the drawing for the new special school.
3 Planning History
3.1 No relevant planning history
4 Relevant Background
4.1 Background to the BSF programme
Improving educational attainment in Wolverhampton is central to the long term sustained regeneration of the City. The existing secondary educational infrastructure in the City is becoming increasingly outdated to meet modern needs, and unless the scale of investment set out in the BSF programme is realised, then the City will fall further behind.
4.2 Whilst the adopted UDP recognises the importance of improved education facilities to the development of the City (policies C1 and C4 in particular), it pre-dates the BSF programme and does not anticipate the scale of investment in education infrastructure proposed.
4.3 The supporting information submitted with the application points to more recent policy initiatives and specifically outlines the challenge outlined in the Black Country Study to improve the performance of young people at GCSE level and to increase the numbers continuing with post -16 education. The BSF programme has been closely linked to regeneration policies set out in the Black Country Joint Core Strategy Preferred options Report (March 2008). Core Policy Area 11 (Community and Sports Facilities) promotes the sustainable location of such facilities and promotes their development and protection. There is specific acknowledgment of the important role of secondary schools in the provision of sports and recreation facilities (paragraph 6.48) which is embodied in the BSF programme. The Outline Business Case for the Wolverhampton Building Schools For the Future programme indicates specifically that the BSF programme contributes to the wider regeneration proposals for the City.
4.4 This vision is carried forward into the proposed development at Kings School Wolverhampton City Council’s commitment to the government’s vision for the education of children with special education needs and disabilities as detailed in the DCSF document “Removing Barriers to Achievement”. The document promotes the use of BSF programmes to bring special and mainstream schools together. The co-location of two special schools with two mainstream secondary schools in Wolverhampton as the sample schemes within the BSF programme therefore supports the realisation of this national ambition.
5 Constraints
5.1 Millennium Urban Forest Recreational Open Space Site of Local Importance for Nature Conservation
36 6 Relevant policies
6.1 National Policies PPS1 - Delivering Sustainable Development PPS9 - Biodiversity and Geological Conservation PPG13 - Transport PPG17 - Planning for Open Space, Sport and Recreation
6.2 Regional Policies RSS11 – Regional Spatial Strategy for the West Midlands
6.3 Relevant UDP Policies AM1 - Access, Mobility and New Development AM7 - Travel Plans AM9 - Provision for Pedestrians AM10 - Provision for Cyclists AM12 - Parking and Servicing Provision AM15 - Road Safety and Personal Security C1 - Health, Education and Other Community Services C4 - Education Facilities D1 - Design Quality D3 - Urban Structure D4 - Urban Grain D5 - Public Realm Public Open Private Space D6 - Townscape and Landscape D7 - Scale - Height D8 - Scale - Massing D9 - Appearance D10 - Community Safety D12 - Nature Conservation and Natural Features D13 - Sustainable Development Natural Energy D14 - The Provision of Public Art EP4 - Light Pollution EP5 - Noise Pollution EP6 - Prot of Ground Water, Watercourses, Canals EP7 - Protection of Floodplains EP9 - Sustainable Drainage Arrangements for Development N1 - Promotion of Nature Conservation N5 - Protection of Sites of Local Importance for Nature Conservation and Landscape Features of Value for Wildlife and Geology N7 - The Urban Forest N9 - Protection of Wildlife Species R1 - Local Standards for Open Space, Sport R2 - Open Space, Sport and Recreation Priority Areas R3 - Protection of Open Space, Sport and Recreation R5 - Sports Grounds R8 - Dual-Use of Open Space, Sport and Recreation
7 Publicity
7.1 The application was advertised in the Express & Star newspaper and by site notices
7.2 Neighbour letters were sent out and one letter of objection has been received which raises concerns about the parking and access requirements of the special school which may effect an already busy situation.
37 7.3 The consultation exercise undertaken by the BSF team produced comments from one resident that the new Tettenhall Wood School should allow access to the Penk Rise playing fields.
8 Internal consultees
8.1 Transportation - Based on the information provided within the TA the proposed Kings School will have no material impact on the surrounding highway network. There would be no transportation objections to the outline proposal; however, the issues in respect of current on-site parking and mini buses should be addressed prior to any agreement of reserved matters.
Use of the existing service access for the site as access to a parking area has been shown, alternative arrangements for servicing should be provided for all of the buildings within the site. The external pedestrian circulation shown for the new building would be across the proposed parking area, presenting a considerable risk to pedestrians. As referred to in the planning statement, this area is likely to be for the drop off and turning of buses for pupils of Tettenhall Special School.
Secure and covered cycle facilities, with the ability to reach them through the site, should be provided for use by staff, pupils and visitors.
8.2 Parks & Contracts (Leisure) – The proposal would result in the loss of around 6000sqm of playing fields accommodating 2 existing mini soccer pitches and 3 tennis courts. The 3 senior football pitches currently on the site suffer from waterlogging throughout the year possibly due to a high water table. Although no change to the layout, condition or size of these football pitches is indicated within this planning application, to serve the age of children in the younger years of the secondary school, as well as within the adjoining primary and special school, the use of some junior pitch(es) would appear to be required instead of having all senior sized pitches. Furthermore, by reducing the size of one or two of these football pitches perhaps a further mini pitch or two could be relocated on the site.
The school is within an area which suffers particularly from a lack of public open space suitable for casual/informal football activities in this residential neighbourhood and as such the introduction of two additional multi use games areas which can be used all year round would be welcomed within the local area if able to be used also by the local community out of hours, although the exact location of these is not shown within this proposed outline application (and should not be provided as a substitute for the natural grass football pitches). Subject to the opinion of Sport England, it may be considered that these games areas could act as a replacement for the loss of the three tennis courts in this area provided the remaining three tennis courts on the site are available out of hours for community use for example.
8.3 Landscape – comments as follows: - • CABE publication ‘Creating Excellent Secondary Schools’ states that the setting for new buildings and the importance of external space can play a significant role in delivering the outcomes, providing safe and stimulating environments where children and young people can learn, explore, play and grow regardless of their educational needs in respect of schools and the submitted application does not refer to the significance of this. • A landscape strategy should have been submitted with the application including a visual impact assessment; statement on the design philosophy for both hard and soft landscaped areas, plan showing trees lost as a result of the development and proposals for the development of the ecological and nature conservation value of the site.
8.4 Trees – no objection
9 External consultees
9.1 Local And Neighbourhood Arrangements – no response received
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9.2 English Nature - Insufficient information submitted with the application (particularly in respect of bats) to demonstrate whether or not the development would have an adverse effect on legally protected species. Therefore object and recommend refusal.
9.3 Sport England (West Midlands) – no response received
9.4 Environment Agency - In the absence of a Flood Risk Assessment object and recommend refusal as the site lies within Flood Zone 1.
9.5 Severn Trent Water - no objections. Include a condition that drainage details are submitted
10 Appraisal
10.1 The main issues in respect of this proposal are as follows: - • Principle of Development • Loss of Playing Field Provision • Parking and Access • Flood Risk • Ecological Issues • Visual Impact • Planning Obligations
Principle of Development 10.2 The site is an established school/educational facility. The redevelopment of the site would therefore accord with UDP Policy C4 – Education Facilities which supports improvements of educational facilities in the City
Loss of Playing Field Provision 10.3 The proposal would result in the loss of 2 mini soccer pitches and 3 tennis courts. The application proposes to provide a cricket pitch and Multi Use Games Area. There is some scope to improve and adapt the current playing school provision subject to no objections from Sport England. Should this be the case then there would be no objections.
Parking and Access 10.4 There would be no objections to the proposals on highway grounds. However, the submitted Transport Assessment (TA) included a number of inaccuracies in respect of trips. This information has been passed onto the agent and it is likely that the errors can be corrected that would not alter the acceptability of the scheme in principle. Issues related to the on-site parking and servicing arrangements can be dealt with through the detailed design process.
Flood Risk 10.5 The site is located within a Flood Zone 1 and requires a Flood Risk Assessment (FRA) which was not submitted with the application which resulted in an objection from the Environment Agency. An FRA has now been submitted and is being considered by the Environment Agency (EA). Subject to the EA withdrawing their objection the proposal would be acceptable.
Ecological Issues 10.6 The application was not supported by an ecological survey. This has since been prepared and is being considered by nature conservation and Natural England (NE). Subject to NE withdrawing their objection the proposal would be acceptable subject to conditions.
Visual Impact 10.7 The scale of the proposed development would not appear out of character with the existing school building. The extensions to the existing building would not exceed the height of the existing building. Although the submitted plans provide conflicting information, they are indicative only. A
39 condition could be imposed that the proposed extensions would not exceed the height and mass of the existing building.
10.8 The proposed relocation of Tettenhall Special School would result in a single storey building in the east corner of the site. The height and scale of the building would be unlikely to have any adverse effect on the residents of Field Head Place and 131 to 143 Regis Road which are located a generous distance from the application boundary.
Planning Obligations 10.9 For a development of this nature there will be a requirement for a financial contribution towards public art, targeted recruitment and training, highway improvements and travel plan.
11 Conclusion
11.1 The general principle of extensions to the existing school and relocation of Tettenhall Special School to the site is acceptable. The proposal would not result in a detrimental visual impact to its surroundings and provided the flood risk, ecological and outstanding concerns about highways can be resolved there would be no objections.
11.2 For these reasons the proposal is considered acceptable subject to outstanding matters being resolved
12 Recommendation
12.1 Delegated Authority to grant outline consent subject to:
1. No objection from the EA in respect of the submitted Flood Risk Assessment 2. No major issues raised by outstanding consultees and any necessary amendments 3. Satisfactory resolution of outstanding highways and ecological issues 4. Negotiation of a Section 106 Agreement to secure public art, highways contributions, travel plan and targeted recruitment and training 5. Conditions to include:
• Standard outline conditions – all matters reserved • Maximum building heights • Sustainable drainage • Waste management plan • Community use agreement • Full ecological survey • Tree survey • Landscaping • Construction management plan • Details of lighting • Division of playing fields • Cycle sheds • Bin stores • Ground Condition Survey • Retention of hedgerows • Details of Boundary Treatment • Phasing • Bat survey prior to demolition • Any other conditions raised by outstanding consultations
40 Case Officer : Jenny Davies Telephone No : 555608 Head of Development Control – Stephen Alexander
DO NOT SCALE Reproduced from the Ordnance Survey mapping with the permission of the Controller of Her Majesty’s Stationery Office © Crown Copyright. Wolverhampton CC Licence No 100019537. Unauthorised reproduction infringes Crown copyright and may lead to prosecution or civil proceedings.
Planning Application No: 08/01246/DWO Location The Kings School, Regis Road,Wolverhampton,West Midlands Plan Scale (approx) 1: 5000 National Grid Reference SJ 387668 300066 Plan Printed 07.11.2008 Application Site Area 94067m2
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