APPENDIX A

Case No: 0302792FUL (FULL PLANNING APPLICATION)

Proposal: ERECTION OF 426 MIXED RESIDENTIAL UNITS, WITH PUBLIC HOUSE AND COMMUNITY HALL WITH ANCILLARY PARKING

Location: LAND AT RIVERSIDE MILL, MILL LANE, LITTLE PAXTON

Applicant: WESTMERE LTD

Grid Ref: 518391 262036

Date of Registration: 13.10.2003

Parish: LITTLE PAXTON

RECOMMENDATION - APPROVE

1. DESCRIPTION OF SITE AND APPLICATION

1.1 Existing industrial site extending to approximately 9 hectares in total situated on land to the west of Mill Lane, Little Paxton. A range of poor quality office, industrial and storage buildings currently occupy the southern two thirds of the site (now largely unused by the current occupiers). It is intended that the majority of the existing buildings on the site would be demolished to make way for the proposed residential redevelopment. The northern portion of the site is largely undeveloped and contains a former sports pitch which is to be retained.

1.2 A substantial hedge defines the northern boundary of the site where it adjoins the Old Great North Road and there is a significant group of protected trees to the north western corner of the site. The western boundary is less well defined but a substantial hedgerow and trees also define the eastern boundary where it adjoins Mill Lane. The southern boundary adjoins the . The land to the north and west of the site is currently undeveloped (although the land to the west is a designated employment commitment). There are residential properties on the opposite side of Mill Lane and the land to the south (the Island Site) has the benefit of extant planning permission for residential development.

1.3 The planning application has been submitted for the erection of 426 dwellings comprising some 327 market homes and 99 affordable units within an acceptable housing mix. The development would also incorporate a proposed public house, a new community hall, formal and informal play areas and related open space. It is proposed that

the existing access to the Old Great North Road be closed and two new points of access be formed onto Mill Lane.

1.4 An Environmental Impact Assessment has accompanied the planning application.

2. NATIONAL GUIDANCE

2.1 PPG1: General Policy and Principles and Draft PPS1, Creating Sustainable Communities, contains advice on the operation of the plan-led system, encourages sustainable development and good design. Draft PPS1 requires planning authorities to deliver sustainable forms of new development by promoting regeneration, healthy economies, the creation of communities and by making more efficient use of land and by reducing the need to travel.

2.2 PPG3: Housing contains advice regarding making the best use of previously developed land, development and redevelopment densities and parking provision. The guidance specifically encourages designing for quality in new developments, the use of appropriate high densities which make efficient use of land and particularly developments that maximise the use of previously developed land for housing (the national target is that 60% of new housing should come from such sources).

2.3 PPG13: Transport aims to promote more sustainable forms of development and related integrated transport solutions. In considering sites for housing LPA's should consider their location and accessibility to jobs and services by modes other than the car.

3. PLANNING POLICIES

3.1 The and Peterborough Structure Plan 2003 contains the following policies that are applicable to the proposed development -

♦ P1/1 - sets out the general approach to development within Cambridgeshire (in and where appropriate adjoining the market towns of etc). ♦ P1/3 - requires that all new development is of a high standard and is sustainable by minimising the need to travel and car dependency by including amongst other things direct walking and cycling routes, good access by public transport, a mix of housing opportunities and facilities for all sections of the community. ♦ P2/2 - sets out the general policy in respect of the location of employment uses in order to create balance of jobs and housing. ♦ P5/2 - sets out the emphasis on re-using previously developed land and buildings to meet residential needs (with having a target of 43% provision on brownfield land). ♦ P5/3 - indicates that housing densities of at least 40 dwellings per hectare should be sought in locations close to a good range

of existing or potential services and where there is potential for good public transport accessibility. ♦ P5/4 - requires that provision be made through Local Plans for affordable housing, including key worker housing, and a mix of housing types. ♦ P6/1 - indicates that development will only be permitted where additional infrastructure and community facilities can be secured by agreement. ♦ P7/2 - requires that development conserves/enhances biodiversity. ♦ P7/4 - requires that development relates sensitively to the existing landscape. ♦ P8/1 - sets out the link between land use and transport and requires that provision be made to ensure that new development is located in areas that are highly accessible by public transport, cycle and on foot. ♦ P8/3 - indicates that Area Transport Plans will be prepared for the Market Towns to identify transport improvements and the need for transport contributions from development.

3.2 The Huntingdonshire Local Plan Alteration 2002 contains the following policies that are relevant to the proposal -

♦ STR1 - sets out the Huntingdonshire settlement hierarchy. ♦ STR3 - designates St Neots as a market town. ♦ STR5 - designates Little Paxton as a group village. ♦ HL5 - requires that new housing development is of good design, achieves efficient use of land, and provides an appropriate mix of dwelling types and sizes. ♦ HL6 - expects new housing development to be at least at densities of 30 to 50 dwellings per hectare or more. ♦ HL7 - seeks to maximise the re-use of previously developed land for housing purposes. ♦ AH4 - states that the District Council will seek to achieve 29% affordable housing provision on development sites containing more than 25 dwellings or 1 Hectare in extent in settlements larger than 3000 people. ♦ OB1 - states that the nature and scale of planning obligations will be related to the size of the development and the impact on physical infrastructure, social and community facilities. ♦ OB2 - states that financial contributions may be sought for the maintenance of open space, children's platy space and woodland/landscaping related to the development proposed.

3.3 The following policies in the Huntingdonshire Local Plan (1995) are applicable to this proposal -

♦ En20 - requires the execution of landscaping schemes in association with new development. ♦ R7 - sets out the District Council's open space standards for new residential development. ♦ R12 - states that children's play areas will be required in new housing areas.

♦ T19 - requires that new development incorporate safe and convenient pedestrian routes. ♦ T20 - requires that new development incorporates segregated cycle routes.

4. PLANNING HISTORY

4.1 The site has an extensive planning history and since 1974 numerous applications have been received for various buildings and associated plant and equipment. In 1994, outline planning permission was granted for the development of a Business Park on part of the site but this has now lapsed.

5. CONSULTATIONS

5.1 Little Paxton Parish Council - OBJECTION to the application (copy attached).

5.2 St Neots Town Council - COMMENT upon the application (copy attached).

5.3 Local Highway Authority (CCC) - considers that subject to the proposed highway works and appropriate contributions to the St Neots Market Town Strategy the development is acceptable in highway and transportation terms (copy attached).

5.4 Highways Agency - NO OBJECTION subject to the developer making a contribution to the planned future upgrading of the Little Paxton junction with the A1.

5.5 Environment Agency - NO OBJECTION subject to the imposition of planning conditions in relation to the treatment of ground contamination, foul and surface water drainage.

5.6 English Nature - Recommends that planning conditions be imposed to protect known bat colonies and other wildlife (including birds).

5.7 Sport - NO OBJECTION subject to the former football playing field being reinstated and the provision of appropriate changing facilities.

5.8 Chief Financial Planning Officer (CCC) - Recommends the provision of a financial contribution towards the provision of additional school accommodation arising from the proposed development.

5.9 County Archaeologist - NO OBJECTION.

5.10 Footpaths Officer (CCC) - NO OBJECTION (supports the proposed provision of public access within the site).

5.11 Cambridgeshire Fire and Rescue Service - Request the provision of fire hydrants either via the payment of a developer contribution or the imposition of a planning condition.

5.12 Huntingdonshire Primary Care Trust - NO OBJECTION subject to the developer making an appropriate contribution being made towards local healthcare provision.

5.13 Head of Environmental Health Services - the site may be subject to contamination and decontamination may be necessary.

5.14 Head of Community Services - appropriate provision to be made for play and open space.

5.15 Transco - NO OBJECTION (although they identify their plant within the vicinity of the site).

6. REPRESENTATIONS

6.1 FIFTEEN letters of representations have been received from local organisations and individuals basically raising concerns regarding -

♦ the scale of development/housing numbers and density; ♦ questioning whether the village and local infrastructure can cope; ♦ raising concerns regarding congestion on local roads, particularly Mill Lane, and other highway issues; ♦ the need to protect existing trees and landscaping; ♦ the potential impacts of the proposed public house; ♦ the potential for flooding to occur; ♦ the need to make provision for wildlife; and, ♦ the nature of the relationship with the potential adjoining employment use.

7. SUMMARY OF ISSUES

Planning Policy Issues

7.1 The application site is located within the defined village environmental limit for Little Paxton. Accordingly a development of the scale proposed is clearly in conflict with the basis of HLP Policies STR1 and STR3 which define the settlement hierarchy and designate Little Paxton as a group village (suitable to accommodate small scale developments of up to 15 dwellings). However, it is considered that the location of the application site must also be assessed in respect of the national, regional and local planning policy perspective that seeks to maximise the re-use of previously developed land in accessible sustainable locations for residential purposes. The application site is so closely related to the identified growth centre of St Neots that it practically must be considered in respect of the group of up-to-date policies that seek to encourage appropriate forms of residential redevelopment (CSP Policies P1/1, P5/2 and HLP Policies STR1, STR3 and HL7).

7.2 This application site is a 'windfall' residential development site that needs to be assessed on its planning merits. Whilst it is accepted that residential development of the scale envisaged would be a

technical departure from the Development Plan it is contended that in reality this is a sustainable location, directly related to a major identified growth area, where planning policy could support a departure from the settlement strategy defined by the Development Plan.

7.3 The existing site is currently in employment use and the Parish Council and others have questioned the appropriateness of its loss for employment purposes. In the absence of an applicable general employment site safeguarding policy it is necessary to evaluate this proposal against the raft of national policies and statements that now encourage LPA's to actively seek to re-use none viable employment sites for other purposes. This is a large scale traditional type B2 employment site which it is considered does not readily lend itself to meeting the demand for typical modern employment uses (which tend to be far more business park orientated). The general St Neots area also benefits from a wealth of existing employment locations and commitments and against that background it is considered that it would be untenable to seek to retain this site for employment purposes.

Urban Design Issues

7.4 The proposed redevelopment of the factory creates the opportunity for the site to developed in order to create a distinctive new residential extension to Little Paxton. The design negotiations have sought to create a development with a definite and distinctive contemporary character with a strong sense of place. It is also important to ensure that any extension to the village have strong elements of integration with the existing community.

7.5 The concept for the site's development has focused upon the need to create a positive and attractive river frontage, the need to create a distinctive character of development, the need to retain and create appropriate open space and landscaping, a viable access strategy and the provision of community facilities.

7.6 The proposed development scheme therefore delivers:

♦ an attractive river frontage featuring distinctive building forms; ♦ a green corridor running through the middle of the site maximising the sense of space and openness; ♦ well landscaped boundaries to screen and integrate the site; ♦ the retention and enhancement of public play space and the provision of a high quality community hall; ♦ the physical and perceived linkage of the development to the new village; ♦ an attractive built form based on distinctive high quality block structures, contemporary in their design but utilising local materials and colours; ♦ appropriate high densities but in a form that is not detrimental to the sense of open space;

♦ highway detailing that prioritised pedestrian movements and traffic calming; and, ♦ high quality landscaping which is integral to the design concept.

Transportation Issues

7.7 Significant concerns have been raised by the Parish Council and other parties with regard to the impact that the development would have upon the local transport infrastructure. Cambridgeshire County Council, acting in respect of their role as the Highway Authority, have analysed the submitted traffic impact information and concluded that whilst there will be traffic impacts from the development these can be satisfactorily mitigated against. Accordingly having regard to the position of the Highway Authority it is considered that a highway impact objection to the proposed development could not be sustained.

7.8 It is considered that the design of the road layout is considered to be appropriate in that it allows for effective linkages to be established whilst the road structure allows for the development to become something more in urban design terms than a large cul-de-sac.

8. SECTION 106 CONSIDERATIONS

8.1 The Section 106 Advisory Group, at their meeting on 15th September 2004, supported the proposals for the package of related social and physical infrastructure. The negotiated package of measures include:

♦ The provision of direct highway works in order to practically integrate the development (improved access arrangements/pedestrian and cycle linkages/relocated bus stops)combined with a significant mitigating contribution to the St Neots Market Town Strategy. ♦ The provision of 29% of the housing units as affordable housing (in an appropriate mix and phases). ♦ The provision of a significant commuted sum to the County Council (as Education Authority) in order to cater for the demand for additional educational facilities. ♦ The provision of a dedicated new community building (which has been designed in conjunction with the Parish Council and which would be subsequently managed by the Parish Council). ♦ The provision of a significant commuted sum to the Primary Care Trust in order to cater for the demand for additional medical services. ♦ The provision of on site open space and formal and informal play facilities. ♦ The provision of a commuted sum to maintain the structural planting areas and incidental open spaces.

8.2 Accordingly a comprehensive range of social and physical infrastructure proposals have been secured following negotiations with the applicants. Accordingly it is contended that the proposals for

community benefit comply with the requirements of the Development Plan and are acceptable within the context of Circular 1/97.

9. CONCLUSIONS

9.1 This application proposes that this large-scale brownfield site be redeveloped for residential purposes. Whilst this proposal would be a departure from the Development Plan, in terms of the scale of the proposed development, it is considered that this proposal can be supported because of the contribution that the development would make towards meeting the housing needs of the area in what must be considered to be an appropriate sustainable location.

9.2 The submitted Environmental Statement has been independently assessed and audited (by the Council's consultants) in accordance with the requirements of Town and Country Planning (Environmental Impact Assessment (England and Wales) Regulations 1999. The Environmental Statement has been amended over the length of the application process and that audit has concluded that the revised Environmental Statement is sufficiently robust so as to comply with the requirements of the applicable regulations.

9.3 In considering this application the Council, acting in respect of its role as the Local Planning Authority, has had regard to the provisions of the Development Plan, comprising the Cambridgeshire Structure Plan 2003, the Huntingdonshire Local Plan 1995 as altered by the Huntingdonshire Local Plan Alteration 2002, so far as material to the application, the Environmental Information submitted to address the significant environmental impacts, and to all other material considerations. In the light of national planning policy guidance, Development Plan policies and other material considerations it is recommended that planning permission be granted for the development as proposed.

10. RECOMMENDATION

10.1 That the application be referred to Council and then the Government Office for the as a significant departure from the Development Plan.

10.2 That subject to the application not being called in by GO-East the Director of Central Services be AUTHORISED to enter into an Agreement under Section 106 of the Town and Country Planning Act 1990 to secure the social and physical infrastructure contributions outlined in this report.

10.3 That subject to the completion of the above the planning application is APPROVED subject to appropriate conditions and to include the following:-

02001 Time limit

Nonstand Approved/Amended Plans

Nonstand Phasing of Development

Nonstand Highway Works/requirements

Nonstand Drainage Strategy

Nonstand Landscape strategy/implementation

Nonstand Materials/Architectural detailing

Nonstand Safeguard Protected species/wildlife

Nonsand Provision of fire hydrants

Nonstand Decontamination

BACKGROUND PAPERS

Planning Application File Reference: 0302792FUL Huntingdonshire Local Plan Huntingdonshire Local Plan Alteration Cambridgeshire & Peterborough Structure Plan

Contact Officer: Steve Ingram, Development Control Manager 01480 388400

This page is intentionally left blank

ANNEX